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Full text of "The Inaugural addresses of the Mayors of Boston"

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S-        INAUGTJEAL   ADDRESS     '      ' 


.  MAYOR    T)F    BOSTON, 


JASUARI   fr,  1890. 








JANCAET   6,  1890. 









Gentlemen  of  the  City  Council:  — 

The  circumstances  under  wbich  we  begin  the 
City  Government  of  1890  place  upon  us  unusual 
responsibilities.  Unless  I  misjudge  public  opin- 
ion, we  shall  be  watched  more  closely  than  were 
our  predecessors.  The  voters  and  taxpayers  of 
Boston,  it  seems  to  me,  are  not  in  the  mood  to 
be  satisfied  with  mere  routine  work;  they  insist 
that  their  Government  shall  be  not  only  efficient 
and  pure,  but  also  progressive  in  the  right  di- 

Public  servants  of  experience  are  apt  to  take 
a  despondent  view  of  public  opinion.  But  the 
pubUc  is  not  intentionally  unjust,  and  it  is  not 
ungenerous.  It  is  not  infaUible,  but  naturally 
prefers  to  judge  its  Government  liberally.  It  is 
ready  to  forgive  errors  of  judgment;  it  will  not 
condone  breaches  of  good  faith,  nor  a  violation 
of  public  duty. 

The  year  1890  will  not  be  a  happy  one  in  the 
annals  of  the  City  Government,  unless  it  marks  a 
generally-increased    efficiency    in    our     legislative 


and  executive  departments.  The  opinion  that  the 
City  Government  will  surely  be  more  efficient 
when  larger  sums  of  money  are  taxed  upon  the 
people,  appropriated  by  the  City  Council,  and  ex- 
pended by  the  Executive  Department,  is  not  justi- 
fied. We  have  the  means  to  satisfy  the  real 
needs  of  the  community,  provided  the  money  is 
expended  with  the  best  judgment.  This  judg- 
ment must  begin  in  the  appropriations  made  by 
the  City  Council,  and  must  be  continued  in 
every  executive  branch  returning  to  the  people 
a  fair  equivalent  of  what  they  have  paid  in 

However  the  Executive  Department  may  be 
separated  from  the  Legislature  of  the  City,  you 
shall  have  free  access  to  all  the  acts  of  the 
Administration  in  all  its  branches.  No  executive 
branch  will  have  any  secrets.  Should  the  City 
Council,  or  either  of  its  branches,  or  any  mem- 
ber of  either,  desire  information  upon  any  of  the 
Executive  Departments,  a  request  duly  presented 
to  the  Mayor's  office  will  be  honored  in  prefer- 
ence to  ordinary  business.  On  the  other  hand, 
I  am  bound  to  confess  that  the  Departments  are 
not  required  to  act  upon  all  suggestions  that 
may  reach  them  from  the  members  of  the  City 
Council,  or  even  from  its   committees. 

Of  your  special  duties.  Gentlemen  of  the  City 


Council,  I  entertain  the  highest  conception.  Within 
the  laws  of  the  Commonwealth  you  are  to  make 
the  Ordinances  and  Kegulations  by  which  the 
people  of  this  great  City  are  to  be  governed. 
In  the  nature  of  things  you  cannot  legislate  for 
the  sole  benefit  of  your  Ward  or  District;  you 
belong  to  the  whole  City,  and  your  service  con- 
cerns the  entire  population.  If  you  take  a  nar- 
rower view  of  your  calling,  you  condemn  your- 
selves to  ineflSiciency  and  a  corresponding  loss 
of  popularity  and  power. 

You  will  shortly  be  called  upon  to  make  the 
annual  appropriations,  and  it  will  be  impossible 
for  any  Executive  Department  to  exceed  the 
amount  you  may  have  supplied.  Wherever  a 
trial  of  strength  has  been  risked  between  the 
several  branches  of  a  government,  that  division 
has  ever  triumphed  which  held  the  purse-strings. 
Tour  power,  therefore,  is  very  great;  and  your 
responsibility  is  measured  by  your  power. 

I  shall  immediately  submit  for  your  informa- 
tion a  series  of  Department  reports,  giving  an 
account  for  the  year  just  closed,  stating  the  sums 
available  in  each  Department,  and  making  certain 
recommendations.  I  do  not  fully  concur  in  these 
latter,  but  all  are  entitled  to  your  attention  and 

The  number  of  our  Election  Precincts  is  need- 


lessly  large,  and  may  be  reduced  without  disad- 
vantage, and  with  a  saving  of  expenses.  The 
recommendation  that  the  number  of  ^Election 
Officers  —  now  twelve  to  every  Precinct  —  be 
reduced  to  eight,  is  founded  in  experience  and 
reason;  but  their  number  is  prescribed  by  the 
laws  of  the  Commonwealth,  and  cannot  properly 
come  before  us  for  decision. 

The  Law  Department  alludes  to  a  revision  of 
the  Ordinances  upon  which  the  City  Solicitor  has 
been  engaged.  I  conunend  his  work  to  your 
immediate  attention  and  early  adoption.  The  ex- 
cellence of  this  work  leads  me  to  suggest  that 
you  authorise  the  Law  Department  to  compile, 
for  your  own  benefit  and  for  the  convenience  of 
the  public,  a  complete  collection  of  all  laws  re- 
lating to  the  City,  with  such  annotations  and 
additions  as  the  Law  Department  may  think 
proper.  It  is  desirable  also  that  each  Executive 
Department  publish,  in  pamphlet  form,  all  Acts, 
Ordinances,  Kegulations,  and  Kules  it  is  specially 
pledged  to  administer.  "We  have  had  a  govem- 
jnent  of  men  and  committees;  we  should  establish 
a  government  of  written  law  administered  by 
competent  men  in  the  public  interest  only. 

The  Paving  and  the  Health  Department  have 
done  their  work  efficiently  ;  they  have  expended 
their  appropriations  judiciously  and  with  a  scru- 


pulous  regard  for  the  wishes  of  the  people. 
Meanwhile  the  public  are  not  satisfied,  and  our 
streets  are  regarded  by  some  persons  as 
ill-paved,  ill-swept,  and  unsatisfactory.  The 
Administration  is  not  charged  with  waste  or 
incompetence;  the  public  complain  that  larger 
smns  are  not  appropriated  and  expended  for  pa- 
ving, asphalting,  macadamising,  and  sweeping  the 
streets.  In  other  words,  the  public  complain 
that  we  want  $2,500,000  for  putting  our  streets 
in  good  condition,  and  an  additional  $100,000  a 
year  for  sweeping  and  general  cleanliness.  Yet 
ever  since  the  Act  of  1885  the  City  has  ex-  ' 
pended  every  dollar  it  could  obtain  by  taxes  or 
loans,  a  fair  proportion  being  allowed  to  the 
Paving  and  Health  Departments,  and  prop- 
erly  expended.  I  recommend  that  the  City 
Council  appoint  special  Committees  to  consider 
the  two  subjects  of  paving  and  sweepmg  our 
streets,  these  Committees  to  report  what  steps 
ought  to  be  taken,  beyond  those  taken  by  the 
Executive,  in  order  to  give  the  public  what  is 
so  persistently  demanded.  The  Superintendent 
of  Health  asks  for  $80,000  to  meet  the  public 
demand,  and  the  Superintendent  of  Streets  sug- 
gests that  his  Department  receive  $500,000  for 
new  work  alone. 

The  conveyance  of  prisoners  from    the  several 


station-houses  to  the  Court-House  and  to  the 
boat  should  be  transferred,  without  further  delay, 
from  the  Superintendent  of  Health  to  the  Board 
of  Police. 

The  Superintendent  of  Lamps  asks  for  an  Or- 
dinance prohibiting  the  erection  of  posts  in  the 
street  within  ten  feet  of  a  public  lamp-post. 
This  reconunendation  is  reasonable,  and  should 
be  acted  upon. 

The  City  Engineer  reports  four  bridges  as 
dangerous,  among  them  the  Berkeley-Street  and 
the  Federal-Street  bridge.  This  subject  is  very 
urgent.  It  will  be  criminal  to  postpone  action 
in  the  premises. 

The  Bridge  Department,  the  Registrars  of 
Voters,  the  Public  Library,  the  Inspector  oi 
Buildings,  the  Superintendent  of  the  Common, 
the  Commissioners  of  Public  Institutions,  and  the 
Armories,  require  a  slight  allowance  each,  and 
are  commended  to  your  attention.  The  Board 
of  Police  will  need  the  ftdl  appropriation,  a  part 
of  which  has  been  transferred  to  other  objects. 
The  recommendations  made  by  the  Directors  of 
the  East-Boston  Ferries  should  be  acted  upon 
by  the  City  Council.  It  may  not  be  possible 
to  appropriate  $500,000  for  their  purposes;  but 
the  Ferries  are  in  need  of  greater  security  and 


The  Superintendent  of  Printing  has  clerical 
power  only.  He  should  have  the  authority  of 
making  all  contracts  for  his  Department;  he 
should  control  the  distribution  of  stationery  and 
similar  supplies;  and  the  distribution  of  public 
documents  should  be  placed  under  his  charge 
after  the  City  Council  has  reserved  for  its  own 
pleasure  a  suitable  number  of  executive  and 
kindred    documents. 

The  sewers  of  the  City  are  not  in  a  satis- 
factory  condition,  the  sums  required  for  a  rea- 
sonably good  system  of  sewerage  not  having 
been  available.  The  subject  is  important,  as  de- 
fective sewers  threaten  us  with  an  epidemic  and 
an  even  higher  rate  of  mortality  than  that  re- 
ported by  the  Board  of  Health.  This  annual 
rate  exceeds  twenty-four  per  thousand  inhab- 
itants;   it  should  not   exceed  two  per  cent. 

The  fire  on  Thanksgiving  day  calls  for  cer^ 
tain  changes  in  our  building-laws.  Should  the 
City  Council  grant  the  necessary  authority,  I 
shall  be  glad  to  appoint  a  Commission  for  a 
general  enquiry  into  this  subject  together  with 
that  of  electric  wires   and  appliances. 

The  City  Hospital  is  commended  to  your 
special   attention   and  prudent  liberality. 

The  City  should  have  the  authority  to  lay 
out  and  establish  the    grade    of   streets  through- 


out  our  territory.  We  permit  private  streets  and 
places  to  be  built  upon  under  conditions  not 
unlike  those  of  the  Church-Street  and  other  dis- 
tricts which  had  to  be  raised  at  a  great  public 

The  opportunity  for  widening  Bedford  Street 
and,  perhaps,  Chauncy  Street,  should  not  be  lost. 
We  may  now  do,  at  a  moderate  expense,  what 
later  on  will  cost  millions.  The  City  Government 
should  act  immediately,  for  the  reason  that  build- 
ing permits  are  about  to  be  issued  to  the  owners 
of  the  estates. 

Our  school-houses  are  in  need  of  sanitary  im- 
provement; and  further  steps  remain  to  be  taken 
to  establish  manual  training  as  a  part  of  our 
Public-School  education.  We  should  co-operate 
with  the  School  Committee  in  making  our  schools 
the  best  and  the  most  practical  in  the  United 

As  to  the  consolidation  of  certain  administra- 
tive Departments,  I  renew  my  recommendations 
of  last  year,  and  desire  to  express  general  con- 
currence in  the  able  Committee  report  upon  that 
subject  made  by  Mr.  Alderman   Wilson. 

For  the  Eleventh  National  Census,  to  be  taken 
this  year,  I  bespeak  the  hearty  confidence  and 
co-operation  of  all  citizens,  especially  business 
men,  and  I  recommend  that    all   its  data    refer- 


ring  to  Boston  be  secured  in  advance,  for  the 
earliest  possible  use  of  the  City  Government  and 
the  public. 

The  National  Encampment  of  the  Grand  Army, 
which  is  to  be  held  in  Boston,  will  probably  be 
the  largest  gathering  of  Union  Veterans  ever 
assembled  in  New  England.  I  recommend  a 
liberal  appropriation  for  this  purpose,  in  order  to 
show  that  Boston  is  not  only  hospitable  and 
loyal,  but  ever  grateful  to  the  men  who  fought 
for  the  Union.  The  City,  the  Commonwealth, 
and  the  people  ought  to  co-operate  in  making 
the  Encampment  worthy  of  Boston,  Massachu- 
setts,  and  the  assembled  Veterans. 

Elaborate  financial  statements  will  be  submitted 
to  you  from  the  Collector,  the  Auditor,  the 
Treasurer,  and  the  Water  Department.  They 
show  how  the  revenue  of  the  City  has  been  ob- 
tained, and  how  it  has  been  expended.  I  regret 
to  say  that  the  tax  and  debt  limitation  Act  of 
April  17,  1885,  has  not  produced  the  result  its 
friends  expected.  Since  that  Act  was  passed,  the 
Commonwealth  has  authorised  loans  amounting 
to  18,900,000  outside  the  debt  limit.  Within  the 
limit  practically  every  dollar  has  been  borrowed, 
the  result  being  the  largest  debt,  both  gross  and 
net,  as  well  as  the  largest  interest  and  sinking- 
fund  burden,  in  our  whole  history  as  a  City.     This 


state  of  affairs  has  been  inherited  by  the  present 
Administration,  and  is  likely  to  continue  in  1890. 
The  low  taxes  are  due  ip  the  Act  of  1885,  and 
our  large  indebtedness  has  been  increased  in 
strict  compliance  with  the  Special  Acts,  and  in  part 
by  order,  of  the  Commonwealth.  Even  the  most 
conservative  members  of  the  City  Government 
have  been  willing,  not  to  say  anxious,  to  borrow 
as  far  as  the  law  allows. 

The  City  Government  is  practically  helpless  in 
the  premises.  We  cannot  tax  the  people  beyond 
the  limit  laid  down  by  law.  Yet  the  wants  and 
demands  of  the  people  beyond  that  limit  are 
imperative.  My  predecessor  in  office  approved 
the  tax  limit  most  emphatically,  but  thought 
the  debt  limit  too  low.  I  cannot  conscientiously 
deviate  from  the  views  expressed  in  my  first 
inaug^al  address. 

For  obvious  reasons  the  taxpayers,  except  those 
especially  informed,  appear  to  favor  the  very  low 
tax-rate  of  the  past  five  years,  and  might  view 
a  change  with  disfavor.  In  order  to  settle  this 
point,  I  trust  that  a  paid  Commission  will  be 
authorised  by  the  City  Government  to  ascertain 
the  good  and  bad  effects  of  the  present  laws, 
both  here  and  elsewhere,  and  to  make  such 
recommendations  as  will  be  proper,  and  in  rea- 
sonable  harmony  with  public  opinion. 


For  the  Executive  has  to  carry  out  the  wish 
of  the  people  as  expressed  in  the  public  laws.  I 
may  state,  however,  that,  in  my  opinion,  a  policy 
of  low  taxes  and  large  debts  is  wrong  and  un- 
fortunate; that  all  our  current  expenses  should  be 
paid  out  of  current  taxes;  and  that  the  Govern- 
ment of  Boston  is  confronted  by  the  alternative 
of  either  reducing  expenses  all  round,  the  Pub- 
lic Library  and  the  Public  Schools  included,  or  a 
change  in  our  fiscal  policy  which  means  higher 
taxes.  In  other  words.  Shall  Boston  become  a 
second-rate  City,  or  shall  we  make  it  the  best- 
governed,  the  best-appointed,  and  the  most  beau- 
tiful City  in  the  United  States?  It  is  for  the 
people,  the  taxpayers,  the  voters  to  choose.  It  is 
for  the  City  Government  to  cany  the  vote  of 
the  people  into  effect. 

"While  I  do  not  approve  the  near-sighted  policy 
of  low  taxes  and  large  debts,  I  do  not  hesitate  to 
add  that  this  policy  has  not  as  yet  worked  dis- 
astrously. The  Assessors  value  the  real  property 
owned  by  the  City  at  |64,042,700.  To  this  should 
be  added  a  vast  amount  of  personal  property,  in- 
cluding $22,789,195.93  in  the  sinking  funds,  and 
other  cash  amounting  to  $4,400,651.82  with  which 
the  Treasurer  began  the  current  calendar  year.  A 
corporation  with  such  assets  need  not,  perhaps, 
dread  the  net  debt  of  |28,321,788.06  with  which 


we  began  this  year.  In  the  past  five  years  this 
debt  has  increased  $3,555,723.79  —  an  amount  rep- 
resented in  the  appropriations  for  the  new  Pub- 
lic Library  building,  the  new  Court-House,  and 
the  Harvard  Bridge,  none  of  which  are  as  yet 
in  use  by  the  people.    We  have  expended  for  — 

Public  Parks $5,718,957  84 

The  New  Public  Library  BuUding        .  692,605  43 

The  New  Court-House  ....  2,473,166  97 

Main  Drainage  Works  ....  5,419,251  74 

Water-Works 22,129,255  19 

A  total  of      •         .         .        .        .  $36,433,237  17 

These  are  vast  snros,  but  we  are  receiving  an 
equivalent,  or  expect  to  receive  it  shortly.  And 
as  long  as  the  City  increases,  both  in  popula- 
tion and  wealth,  our  expenses  should  increase. 
Even  our  running  expenses  will  increase  greatly 
in  merely  maintaining  the  great  public  works 
just  named.  Our  expenses  should  diminish  when 
we  are  ready  for  a  decline,  when  we  no  longer 
demand  the  best,  and  when  Boston  is  too  eco- 
nomical for  the  latest  and  most  costly  improve- 
ments. God  forbid  that  this  day  should  dawn 
while  we  or  our  children  are  among  the  living. 



Cnr  Akchitbct's  Office,  December  28,  1889. 
Hon.  Thohas  N.  Hart,  Mayor. 

Sm:  —  The  actual  work  doae  by  this  Departanent  during  the 
calendar  year  1889  is  as  follows:  — 

The  Boxbury  High  School,  Warren  street;  Out-Patients* 
Building,  City  Hospital,  Harrison  avenue ;  Grammar  School,  H 
and  Fifth  streets.  South  Boston ;  Horace  Mann  Sdiool,  Newbury 
street ;  Athletic  Building,  Charles  River  Park ;  Biological  Labora- 
tory, Chestnut  Hill ;  Water  Tank  Cover,  Orient  Heights,  Ward 
1 ;  Police  Department  Patrol  Wagon  House,  Division  7;  Police 
Department  Patrol  Wagon  House,  Division  11 ;  Brick  Stable, 
110  by  40  feet,  for  the  Wat^  Board,  Albany  street;  Machine 
Shop,  215  by  40  feet,  for  the  Water  Board,  Albany  street ;  Pierce 
School,  12  rooms,  Washington  street,  Waard  24;  Six-room 
school.  Bow  and  Wyman  streets.  Ward  23 ;  Four-room  school, 
Harold  and  Homestead  streets.  Ward  21 ;  Eight-room  school, 
Leyden  street.  Ward  1 ;  Ten-room  school,  Sumner  and  Lamson 
streets,  Ward  2 ;  Eight-room  school,  Cumberland  and  St.  Botolph 
streets,  Ward  11 ;  Stable  for  Sewer  Department  at  Chestnut  Hill ; 
Stable  and  Engine  House  at  Calf  Pasture,  for  the  Sewer  Depart- 

The  Roxbury  High  School  on  the  first  of  June  was  up  to 
grade,  and  no  work  going  on.     It  has  been  since  that  time  so 


far  completed  as  to  be  ready  for  the  work  of  the  iron  roof. 
Part  of  the  roof  is  now  in  position,  and  the  contracts  call  for  the 
work  on  the  roof  to  be  completed  by  April  first.  The  temporary 
roof  for  this  building  is  already  in  place,  and  the  iron-work  is  to 
be  built  over  it ;  meantime  the  work  on  the  inside  of  the  build- 
ing will  be  pushed  along  through  the  winter  months.  Much 
delay  was  occasioned  on  this  building  in  the  early  part  of  the 
year  by  the  refusal  of  the  Inspector  of  Buildings  to  approve  the 
plans  of  my  predecessors,  on  account  of  violations  of  both  Statute 
Law  and  the  City  Ordinances,  causing  a  lai^e  additional  expense 
in  fire-proofing  and  changing  wood  roof  construction  to  iron. 
Strenuous  efforts  will  be  made  by  this  Department  to  complete 
and  turn  over  this  building  to  the  School  Committee  soon  after 
the  next  summer  vacation,  so  that  the  large  amount  of  the  City's 
money  involved  in  its  erection  shall  lie  idle  as  short  a  time  as 

The  Out-Patients'  BuUding  at  the  City  Hospital  has  been 
completed  and  turned  over  to  the  Trustees. 

The  Thomas  N.  Hart  Grammar  School,  H  and  Fifth  streets, 
South  Boston,  has  been  completed  and  turned  over  to  the  School 

The  Horace  Mann  School  will  be  ready  for  the  School  Com- 
mittee during  the  month  of  March,  1890.  The  work  on  this 
building  has  been  pushed  as  rapidly  as  the  state  of  the  appro- 
priation would  permit.  The  inside  finish  of  the  building  is  being 
rapidly  completed. 

The  Athletic  Building,  Charlesbank,  has  been  completed  and 
turned  over  to  the  Park  Commissioners. 

The  Biological  Laboratory  at  Chestnut  Hill  has  been  com- 
pleted and  turned  over  to  the  Water  Board. 

The  Water  Tank  Cover  at  Orient  Heights,  Ward  1,  is  about 


completed  and  will  be  tarned  over  to  the  Water  Board  in  a  few 

The  Police  Patrol  Wagon  Houses  in  both  Divisions  7  and  11 
are  well  under  way  and  will  be  completed  and  turned  over  to 
the  Police  Department  about  March  20. 

The  Stable  for  the  Water  Board  on  Albany  street  is  about 
completed,  and  will  be  turned  over  to  the  Water  Board  in  Jan- 
uary, 1890. 

The  Machine  Shop  on  Albany  street,  for  the  Water  Board,  has 
been  contracted  for  and  will  be  pushed  to  completion  as  rapidly 
as  the  weather  of  the  winter  months  will  permit. 

The  plans  for  the  Pierce  School  on  Washington  street,  in 
Ward  24,  have  been  approved  by  the  School  Committee,  and  the 
work  on  the  foundations  is  almost  complete  and  ready  to  be 
covered  up. 

The  plans  for  the  Schools  on  Bow  and  Wyman  streets,  Ward 
23 ;  Harold  and  Homestead  streets.  Ward  21 ;  Ley  den  street, 
Ward  1 ;  Sumner  and  Lamson  streets,  Ward  2 ;  Cumberland  and 
St.  Botolph  streets.  Ward  11,  are  all  in  course  of  preparation, 
some  of  them  being  nearly  completed. 

The  plans  for  the  Stable  for  the  Sewer  Department  at  Chestnut 
Hill  have  been  made  and  are  awaiting  orders  from  .the  Super- 
intendent of  Sewers,  as  are  also  the  plans  for  the  Stable  and 
Engine  house  at  Calf  Pasture. 

Some  preliminary  work  has  been  done  on  the  new  Engine 
Houses  and  Central  Fire  Station  for  the  Fire  Department,  which 
are  proposed  to  be  built  the  coming  year. 

The  actual  Expenses  of  the  Department  for  the  year,  exclud- 
ing the  draft  of  January  first,  1889,  but  including  the  draft  of 
January  first,  1890,  have  been  $18,491.50,  leaving  an  unexpended 
balance  of  $7,173.39,  which  by  close  economy  will  carry  the 
Department  to  the  end  of  the  fiscal  year. 



I  might  add  that  the  original  appropriation  was  $20,000.  A 
special  appropriation  was  made  for  the  Department  in  the  early 
part  of  the  year  to  settle  accounts  which  had  ran  over  from  the 
year  1888.  The  original  appropriation  of  $20,000  was  some 
$3,000  short  of  what  was  appropriated  the  year  previoas,  and 
the  Department  has  done  more  work,  as  can  be  seen  by  a  glance 
at  the  statement  above,  than  it  has  for  some  years. 

The  number  of  persons  at  present  employed  by  tJie  Depart- 

ment  ia  twenty-six. 


H.  H.  ATWOOD, 

City  Architect, 


Assessors'  Office,  December  24,  1889. 

To  His  HofnOT  th£  Mayor, 

Sib  :  — The  valuation  of  the  City  as  found  by  the  Assessors  as 
of  the  first  day  of  May,  1889,  was  $795,433,744.  The  estimated 
amount  of  the  real  estate  was  $593,799,975,  and  of  personal  estate, 
$201,633,769.  The  gain  in  valuation  over  that  determined  by  the 
assessment  of  1888  was  $30,786,700  on  real,  and  $194,496  on  per- 
sonal property.  The  amounts  of  the  several  warrants  for  State, 
County,  and  City  taxes,  for  the  current  and  preceding  year,  were 
as  follows :  — 


County . . . 


$888,805  00 

668,444  00 

8,520,783  00 

$10,028,082  00 




$759,518  29 

788,191  00 

8,578,960  00 

$69,747  00 
58,177  00 

$74,286  71 

$10,076,669  29 

$58,687  29 



The  rate  of  taxation  for  1888  and  1889  on  each  $1,000,  the 
proportion  for  the  several  warrants,  and  the  average  rate  of  taxa- 
tion for  the  whole  State,  as  determined  by  the  Tax  Commissioner 
of  the  Commonwealth  for  the  assessment  of  Massachusetts  cor- 
porations, are  shown  as  follows :  — 





Avermge  of  State. 







Of  the  City  rate  of  $11.69  in  1888,  $2.38  per  $1,000  were  re- 
quired for  public  schools,  and  $9.81  per  $1,000  raised  the  money 
expended  from. the  tax  levy  for  all  other  purposes.  Of  the  rate 
of  the  current  year,  the  schools  require  $2.47,  leaving  $8.80  per 
$1,000  of  the  total  levy  for  other  purposes.  For  the  State  tax  of 
the  present  year,  two  warrants  were  received  by  the  Assessors. 
The  first  was  for  the  City's  proportion  of  the  State  tax  of 
$2,000,000.  Its  amount  was  $738,020.  The  second  was  for  the 
sum  of  $21,498.29.  It  was  issued  by  the  Treasurer  of  the  Com- 
monwealth by  authority  of  Section  7  of  Chapter  384  of  the  Acts 
of  the  year  1888.  This  chapter  provides  that  commissioners 
appointed  by  the  Governor  and  Council  shall  acquire  land  in  the 
City  of  Boston  and  other  cities  of  the  State,  ''  by  purchase  or 
otherwise,"  and  erect  thereon  armories  for  the  volunteer  militia. 
To  meet  the  expense  incurred,  the  State  may  issue  four  per  cent, 
certificates  of  debt,  which  are  sold  as  the  Governor  and  Council 
shall  order.  To  provide  for  the  interest  when  due,  and  the 
principal  at  maturity,  a  sinking-fund  is  established.  The  amount 
required  therefor,  and  the  semi-annual  interest  on  the  outstanding 



certificates,  is  charged  to  the  City  where  any  armory  is  located, 

^*  and  assessed  upon  it  in  the  apportionment  and  assessment  of 

its  annual  tax."  '  As  two  lots  of  land  have  been  taken  in  Boston, 

upon  one  of  which  a  building  has  been  erected,  a  considerable 

addition  to  the  tax  of  the  State  may  be  expected  in  the  future 

from  the  annual  requisitions  made  upon  the  City  under  this  act. 

The  Wards  of  Boston  as  they  now  exist  were  established  in  1875. 

Their  lines  cannot  be  altered  until  1895.     The  law  requires  that 

our  assessment  districts  shall  be  within  Ward  lines.     Some  of  our 

suburban  Wards  have  grown  to  such  an  extent  that  it  has  become 

impossible  to  do  the  street-work  of  their  districts  in  the  time  that 
can  be  given  for  that  purpose.     In  1887,  Ward  24  (Dorchester), 

which  since  1876  had  consisted  of  two  districts,  was  divided  into 

three.    The  time  has  arrived  when  West  Boxbury  can  no  longer 

be  properly  canvassed  with  less  than  three  assessment  districts 

within  the  lines  of  Ward  23.    The  power  to  make  such  a  change 

is  given  to  the  Board  of  Assessors  by  Chapter  115  of  the  Acts  of 


The  actual  expenses  of  the  Department  for  the  year  1889 
were  $108,883.26.  The  unexpended  appropriation  to  meet  the 
expenditures  for  the  balance  of  the  financial  year  amounts  to 
$16,707.66,    and    is    sufiicient    for    that    purpose. 

The    force  employed  in  the  Department  at  this  season  of  the 

year  is  small.    At  present  it  consists  of  five  Assessors  and  nine 


Very  respectfully,  for  the  Board  of  Assessors, 








Boston,  January  1,  1890. 
To  His  Honor  the  Mayor. 

Sir  :  —  I    herewith    transmit    a  statement  of  the  Assessors! 

valuation  for  the  preceding  five  years  and  of  the  abatements 

thereon  allowed  previous  to  the  thirty-first  day  of  December 

last,  also   the    average    of    said    valuations  reduced    by    said 

abatements :  — 

Aueuon*  Abatomenta  to 

Valoatton.  Dooember  81,  1889. 

1886 $686,579,072  20  #8,617,800  00 

1886 710,621,886  82  7,661,800  00 

1887 748,164,717  41  7,468,800  00 

1888 766,868,648  89  6,772,700  00 

1889 796,981,448  71  6,544,900  00 

Total #8,705,650,217  08        #86,965,500  00 

1/688  abatement8    ....  86,965,500  00 

#8,668,684,717  08 
DiTided  by  5  gires      .        .        .  788,786,948  00  as  the  arerage  of 

the  Asaesaors'  ralitations  for  the  past  fire  years. 

Respectfully  submitted, 




AuprroR's  Office,  Crrr  Hall,  December  31,  1889. 
HoK.  Thomas  N.  Hart,  Mayor. 

Sir  :  — In  answer  to  your  circular  letter  of  December  23,  1889, 
I  TTOuld  state  — 


First :  The  amount  of  drafts  drawn  during  the  year  1889  have 
been  as  follows :  — 

6ea«ralDnfti.       Pay-roll  Drafts.       SpeoUl  Drafts.  Total*. 

Ci^  Account :  96,728,268  82    $6,509,60122    $5,549,880  99    $18,787,696  08 

Coanty  Account :  Amount  allowed  and  drawn  for         .  1,258,668  15 

$20,046,264  18 

Second :  Total  expense  of  tins  Department  for  1889     .        .  $24,270  85 

Third :  Balance  of  the  appropriation  for  the  year  1889-90, 
January  1,  1890 6,608  08 

which  will  be  sufficient  for  the  financial  year  ending  April  30, 1890. 

Fourth :  Total  number  of  persons  employed  in  this  Department 

is  twelve. 

Very  respectfully, 


City  Auditor. 

The  Crrr  and  Countt  Debt. 

Gross  funded  debt,  December    81,   1888    ....   $48,576,569  29 
Add  funded  debt  issued  in   1889 8,784,000  00 

$52,860,569  29 
Deduct  funded  debt  paid  in  1889 1,174,828  20 

Gross  debt,  December  81,   1889 $51,185,741  09 

Sinking-Funds,  December  81,   1888    .        .  $21,539,589  42 
Receipts  during  1889 2,414,222  44 

$23,958,811  86 
Payments  during  1889  .        .        .        .      1,164,615  93 

$22,789,195  98 
Bonds    and  mortgages,    the     payments  of 

which  are  pledged  to  the  payment  of 

debt         .        .        .        .        .        .        .  74,757  10 

Total  redemption  means,  December  81,   1889  .        .        .     22,863,958  08 

Net  debt,  December  31,   1889 $28,821,788  06 


APPENDI3(.  23 

Gross  debt,  December  81,   1889 $51,186,741  09 

Gross  debt,  December  81,  1888 48,576,569  29 

Increase     * $2,609,171  80 

Net  debt,  December  81,    1889 $28,821,788  06 

Net  debt,  December   81,  1888 26,850,901  99 

Increase $1,470,886  07 

Citj  debt,  including    balance  of  debts  assumed  by   acts 

of  annexation $82,424,467  11 

Conniy  debt 2,446,000  00 

Cochitaate  Water  debt 15,476,278  98 

Mystic  Water  debt 889,000  00 

$51,185,741  09 

At   the    present   time   tlie   assumed   debts    remaining   unpaid   are,  on 

account  of  — 

Cbarlestown  Qty  . 

1        •        •        •        • 

$728,000  00, 

bearing  6% 

Mystic  Water 

$488,000  00 



41                       l< 

108,000  00 



U                     il 


18,000  00 



•                          4 

240,000  00 




85,000  00 

889,000  00 



$1,567,000  00 

West  Boxbury 

•        •        •        • 

50,000  00 



$1,617,000  00 



Statement  showisg  borrowing  limit,  December  81,   1889: 

Total  Debt,  City  and  County,  December  81,   1889  .        .  #61,185,741  00 

Less  Special  Loans $8,650,000  00 

**      Cochitnate  Water  Debt       .        .        .  15,478,278  98 

"     Mystic  Water  Debt  .  889,000  00 

<*     County  Debt  exempt   ....     1,800,000  00 

21,565,278  98 

•29,620,467  11 
Less  Sinking-Punds ^22,789, 195  98 

Cochitnate  Water  Sinking- 

Fund  ....  95,285,456  87 
Mystic     Water     Sinking- 

Fund  ....  754,926  05 
Park    Construction   Sink- 

ing-Fund  .  .  .  169,077  08 
Special     Loans     Sinking- 

Fund      ....  89,926  84 

County  Sinking-Fund       .  44,420  07 

6,843,805  91 

16,445,890  02 

913,175,077  09 
Add  amount  of  Loan  Order  approred  by  Mayor  Decem- 
ber 24,  1889 1,087,000  00 

914,212,077  09 
2  %  on  $711,071,286,  average  raluation  5  years,  less  abate- 
ments   14,221,425  72 

Bight  to  borrow  December  81,  1889         ....  $9,848  68 



Gross  Debt  akd  Debt  Rsquxbemekts. 

DeM  upon 

wbloh  iDterMt 

was  paid. 




Paid  from 
Taxes  oihor 
than  Wat«r. 


from  Water 



from  Taxes 







187»-79    .... 
187»^    .  .  .  . 
1880-81    .  •  .  . 
1881-82    .... 
1882-88    .  .  .  . 

1884-86    .... 
1886-86    .... 
18804T    .... 
1887-88    .... 

Xboq  oB     .... 

#42,869,816  28 
42,060,126  86 
40,9«0,88t  18 
40,079,812  04 
41,184,358  12 
48,185,669  07 
42,962,180  02 
48,628,822  04 
46,790,068  72 
48,998,808  46 
40,920,475  26 

#1,606,754  56 
1.670,147  66 
1,586,540  01 
1,627,144  96 
1,492,877  19 
1,683,972  82 
1,620,900  10 
1,611,413  41 
1,688,974  78 
1,601,699  28 
1,603,862  68 

$686^406  70 
706^902  08 
684.681  52 
661,419  76 
692,206  80 
698,078  41 
717,618  07 
790,688  78 
788,740  28 
ni,997  96 
788,117  82 

#664,906  00 

405,704  00 
808,655  00 
781,601  00 
720,159  00 
768,278  00 
780,498  00 
648,968  00 
685,006  00 
749^07  00 
808,960  00 

#218,328  32 
287,706  80 
227,440  20 
278,894  04 

280,260  89 
186322  11 
860,068  68 
260,038  06 
879,499  01 

Loans  Aitthobized  bt  Statute  Outside  of  Debt  Limit. 





Bate  of 




Pobllo  Plffk  Oonatnietlon  .  .  . 


June  21,1886^ 




Suffolk  County  Ooiurt-HOQse  . 

>  2,500,000 

Mareb21, 1887, 




Hairard  Bridge 


May    18,1887, 



PttbUe  Piark  Lands 


May    26,1887, 




Sewer,  Ttamont  street    .... 


June   11,1887, 


Stony  Brook  Improremeiit  •  . 


Jone  16,1887, 




Pnblio  Park  Lands 


May    28,1888. 




Marob  1,1880. 



W.  CSMSler  Park  Extension    . 


April  12, 1880, 


Confress    street   and    OIItot 
street  Extension 


April  26, 1880, 


Improved  Sewerage 


May      9, 1889. 


Total • 



*  In  addition  to  tbeeost  of  tbelnnd. 



CouNTT  OP  Suffolk. 

Bttnning  Expenses. 

1881-82 $888,261  12 

1882-^      . 862,908  06 

1888-84 868,855  40 

1884-85 880,928  70 

1885-86 416,970  08 

1886-67 484,618  54 

1887-88 472,019  24 

1888-89 522,921  68 

1889-90  to  December  1,  inelnsiye   .        .        .     '  .        .        .  845,244  61 

.Amount  of  debt  issaed   between  May  1,  1878,  and  May  1, 
1889,  and  the  rate  of  interest:  — 

11,000  00  at 

1             4 

6  per  cent. 

100,000  00  " 

i             1 

6    " 

718,000  00  ** 

»             < 

^    « 

18,017,500  00  ** 

1            4 

i     " 

4,864,000  00  ** 

t            i 

8J   " 

144,000  00  *» 

>            4 

Si   " 

2,065,000  00  " 

1            < 

8    " 

125,000  00  " 

i        4 

2J   " 

$25,534,500  00 

Amount  of  debt  paid   between  May  1,   1878,   and   May   1, 
1889,  and  the  rate  of  interest:  — 

$520,000  00  at     •  .  7    per  cent 

90,000  00  "  .  .  6}        " 

8,860,490  60  **  .  .  6          " 

78,000  00  "  .  .  5J        " 

Carried  fanoard^  $9,548,490  60 


Brought  forward^  $9,548,490  60 

5,387,201  62  at     . 

5    per  cent. 

1,138,205  00   "     • 

.        4J        » 

1,628,000  00  "     . 

4          " 

150,000  00   "     . 

.        8J       " 

154,000  00   **     . 

8          " 

125,000  00  "     . 

.     ^    " 


$18,070,897  22 

150  00  annuity. 

$18,071,047  22 

Transfer  of  Appropriations. 
The  following  table  shows  the  amount  of  the  transfers  made 
by  order  of  the  City  Counoil  daring  the  past  fifteen  years,  the 
amount  added  to  the  regular  appropriations,  and  the  percentage 
of  these  additions  to  the  total  of  transfers :  — 



Total  of 

Tranif  era  to 


R<»gnlar  Approprlationa. 


$420,970  02 

$117,781  58 


714,880  97 

255,459  40 


418,898  54 

129,298  24 


211,167  50 

121,828  02 


171,404  82 

185,484  75 


842,187  07 

241,597  81 


270,814  85 

192,174  25 


229,659  07 

165,124  88 


261,010  11 

158,808  08 



127,418  42 


282,266  87 

148,010  71 


867,421  68 

154,451  10 


882,552  02 

256,478  75 


851,588  06 

255,770  71 


870,122  26 

224,468  24 












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Loans  of  1889. 

Date  of  Order. 

Dec.  81,  1887. 

Jan.    8,  1889. 

Feb.  16,  1880. 

Mar.  18,  1889 . 

Apl.  16,  1889. 

June    8,  188M . 

Bept.  4,  1889. 
Sept.  28,  1889 . 
Koy.  13,  1889. 
Not.  13,  1889 . 

Debt  laaaed  alnce  Jan.  1, 1889. 

Pabllc  Park  Conatmetlon 



New  Library  Building  .  . 
Extension  of  Maine    .  •  . 

New  Shope,  Albany  et.,  Ooehltnate  Water- 

Improved  Sewerage  .... 


Extension  of  Mains,  etc.  .  . 
Additional  Supply  of  Water 

Included  in 
Debt  Limit. 


$709,000  00 
480,000  00 

Outalde  of 
Debt  Limit. 

$500,000  00 

Date  of  Order. 

The  following  amounts  have  been  author- 
ised but  not  issued  :— 

Dec.  81,  1887. 

Mar.  18,  1889. 

Not.  13,  1889 . 

Not.  80,  1889 . 

Deo.  24,  1889. 

Public  Park  Construction  . 
New  Library  Building  .  .  • 
Extension  of  Mains,  etc.  .  . 
AddiUonai  Supply  of  Water 

600,000  00 

$1,749,000  00 

Included  in 
Debt  Limit. 

600,000  00 
200,000  00 

00,000  00 
600,000  00 

130,000  00 
146,000  00 

$3,035,000  00 

Outside  of 
Debt  Limit. 

$1,037,000  00 

$1,087,000  00 

$1,000,000  00 
600,000  00 
20,000  00 
900,000  00 

$2,420,000  00 


14  Beacon  Street,  December  28,  1889. 
Hon.  Thomas  N.  Hart,  Mayor  of  Boston, 

Sir  :  —  The  actual  work  done  by  this  Department  daring  the 
year  1889  has  been  the  usual  and  necessary  repairs  upon  the 
tide-water  and  inland  bridges,  for  which  the  appropriation  was 
granted.  The  work  has  been  done  by  day-labor.  Some  extraor- 
dinary repairs  have  been  done  by  order  of  the  City  Engineer, 



for  which  no  provision  had  been  made,  bat  they  were  demanded 
for  the  public  safety  and  convenience,  and  for  this  payment  I  was 
obliged  to  use  money  apportioned  for  other  purposes.  I  con- 
sidered that  I  was  using  good  judgment  in  making  said  repairs. 
A  brief  statement  of  the  work  done  is  as  follows:  — 

61  roadways  ware  Bbeathed;  9  naw  decks  laid;  6  new  sidewalks  laid 
44  new  wheels  pat  in;  10  new  headers  put  in;  8  new  stringers  put  in 
2  piers  repaired;  4  waterways  repaired;  6  fences  repaired ;  6  gates  repaired 
1  draw-house  repaired ;  2  stables  repaired ;  6  tracks  repaired ;  1  new  paint- 
shop  bnilt ;  repaired  sheathing  on  9  bridges ;  repaired  planking  on  8  bridges ; 
extensive  paving  repairs  on  2  bridges;  repaired  gaards  on  8  bridges; 
repaired,  painted,  and  reset  7  bnoys ;  repaired  engines  and  machinery  on  4 
bridges ;  19  bridges  were  painted  two  coats ;  18  buildings  were  painted  two 
coats;  5  boats  were  painted  two  coats;  2  draws  were  painted  two  coats; 
and  small  repairs  were  made  on  varioas  bridges. 

The  expenses  of  the  Department  have  been  as  follows:  — 
January  1,  1889,  to  May  1,  1889         .         .         .        $20,981  63 

May  1,  1889,  to  January  1,  1890 

74,840  81 

$95,322  44 
95,113  38 
97,011  44 

January  1,  1889,  to  January  1,  1890 
Expenses  during  1888  were 
Expenses  during  1887  were 

In  no  year  during  its  existence  have  the  expenses  of  this 
Department  been  less  than  $95,000. 

Appropriation  for  1889-90    .         .         •         .         .        $90,000  00 
Expended  to  January  1,  1890       ....  74,340  81 

Balance  on  hand $15,659  19 

This  amount  will  not  be  suflQcient  to  carry  the  Department 
to  the  end  of  the  financial  year.  But  if  I  am  reimbursed  in 
part  for  the    money    expended   for   extraordinary  'repairs    for 


which  I  Bhoald  not  be  held  responsible,  —  a  small  amoani  of 

which  I  asked  for  in  my  communications  of  October  21  and 

NoTcmber  8,  1889,  — I  shall  be  enabled  to  make  snch  repairs  as 

may    be    required    during    the    winter,    to    continue    the    new 

watchman  at  Cottage-street  bridge  recently  built,  to  remove  the 

snow  from  inland  bridges,  to  have  a  small  amount  for  contin-, 

gencies,  and  to  continue  my  force  as  at  present  to  May  1,  1890. 

The  total  number  of  names  on  my  rdOs  at  present  is  72,  divided 

as  follows :  52  draw -tenders,  who  are  permanently  employed ;  10 

mechanics  on  full  time,  8  mechanics  on  half  time,  a  derk,  and 

the  Superintendent. 



Sttptriniendent  of  Bridget. 



Boston,  December  27,  1889. 
To  His  Honor  the  Mctyor. 

Sm:  — In  response  to  Circular  No.  35,  of  December  28, 
1889,  I  would  say  that,  with  the  exception  of  thorough  re- 
pairs to  the  Prison-Point  Bridge  draw,  there  has  been  no  work 
done  on  the  bridges  in  charge  of  the  Commissioners  other  than 
their  maintenance  and  necessary  repairs. 
The  expenditures  in  1889  have  been  .  .  .  $7,572  13 
Balance  of  appropriation 8,385  95 

The  unexpended  balance  is  sufficient  for  all  purposes  to  the 

end  of  the  fiscal  year. 

The  number  of  employees  is  eight. 


*  Commiswmer  for  Boston. 



Depabtkemt  fob  the  Ikspectiok  of  Buildings, 

Old  State  House,  December  28,  1889. 

Honorable  Thomas  N.  Habt,  Mayor, 

Sib: — The  work  of  the  Department  contLnaes  to  increase 
year  by  year,  and  the  extent  of  the  increase  of  the  work 
of  this  year  to  December  25  only,  as  compared  with  the 
entire  work  of  last  year  can  be  seen  by  the  following  table 
of  permits  granted:  — 

To  December  25 1889  1889 

Brick 379  881 

Wood 1,844  1,554 

Alterations,  etc 2,202  2,095 

Plumbing 4,185  8,575 

Boilers  and  Engines 888  1,018 

In  the  departments  of  egress,  elevators,  prosecutions,  plans, 
and  records,  the  same   increase  has  taken  place. 

The  expense  of  the  Department  for  the  year  1889,  in- 
cluding the  January  draft  of  1890,  and  excluding  the  Jan- 
nary  draft  of  1889   amounts  to  $58,609.85. 

This  has  been  obtained  not  only  by  the  strictest  economy, 
but  by  cutting  off  the  means  of  transporting  the  officers  of 
the  Department  through  and  about  the  City  in  their  official 
work,  thereby  taking  up  the  valuable  time  that  should  be 
given  to  inspection,  in  going  from  place  to  place  on  foot. 
This  cut-down  was  necessary,  that  the  Department  might 
comply  with  the  requirements  of  the  City  Charter,  and  keep 
within  the  appropriation. 

Our  unexpended  appropriation  is  $12,392.88. 


As  to  tho  ability  of  the  Department  to  continue  its  work 
to  the  end  of  the  fiscal  year,  I  would  respectfully  renew 
my  communication  of  Noyember  8,  1889,  in  answer  to  Circu- 
lar No.  34,  and  add  that  since  that  date  the  Department 
has  been  called  upon  to  incur  large  and  what  may  be  termed 
extraordinary  expenditures.  The  amount  I  am  unable  to  state, 
the  bills  not  having  as  yet  been  presented.  This  amount 
wiU  have  to  be  paid  by  a  special  appropriation,  the  De- 
partment having  no  appropriation  granted  it  to  meet  such 

These  expenses  were  necessitated  in  securing  the  public 
against  accident,  by  taking  down  unsafe  walls  occasioned  by 
the  fire  of  November  28.  . 

For  the  greater  efficiency  of  this  Department,  especially 
such  as  may  require  action  on  the  part  of  the  Mayor,  the 
City  Council,  or  the  Commonwealth,  I  would  recommend  the 
cooperation  of  the  City  Council  with  the  gentlemen  of  the 
Committee  now  acting  on  the  revision  of  the  BuUding  Laws, 
of  which  Mr.   Wm.   Minot,  Jr.,  is    chairman. 

This  able  committee  of  citizens,  representing  the  varied 
interests,  such  as  architects,  masons,  builders,  and  contractors, 
carpenters,  fire  insurance  agents,  board  of  underwriters,  elec- 
tricians, real  estate  owners  and  agents,  and  civil  engineers, 
has    received  the  hearty  commendation  of  your  Honor. 

The  Department  consists  of  thirty  persons. 



Inspector  of  Buildings, 



Office  of  the  Superintendent,  December  28,  1889. 
Hon.  Thomas  N.  Hart,  Mayor. 

Sir  :  —  In  reply  to  Circular  35,  I  would  respectfully  submit 
the   following :  — 

The  actual  work  of  the  Department  for  the  year  1889  has 
been  the  repairs,  alterations,  furnishing,  equipment,  and  main- 
tenance of  the  public  buildings,  school-houses,  County  buildings, 
and  armories  of  the  militia. 

The  actual  expense  for  this  work  for  the  same  period  has 
been  as  follows :  — 

PubUc  BaildingB $142,533  40 

School  Houses 276,787  75 

County  Builduigs 65,504  88 

Armories 40,721  43 

These  amounts  cover  the  period  from  the  February  draft  of 
1889  to  that  of  January,  1890,  inclusive. 

The  unexpended  balances  of  appropriations  which  this  De- 
partment has  in  charge  will  be  sufficient  (provided  no  extraor- 
dinary demands  are  made)  to  continue  our  work  to  the  end  of 
the  fiscal  year,  with  the  exception  of  that  for  armories,  which 
will  require  an  additional  amount  of  $5,000  to  cover  the 
time  specified. 

The  total  number  of  persons  employed  in  the  Depai*tment, 
including  the  Superintendent,  is  eleven  (11). 

In  my  judgment  the  number  of  polling  places,  which  now 
number  286,  can  be  reduced  to  200,  and  not  inconvenience  the 
citizens,  but  materially  reduce  the  cost  in  this  direction.  I 
would  also  suggest  the  feasibility  of  merging  all  the  work  that 


appertains  to  the  use  of  ward  rooms,  registration  of  voters 
and  election  expenses  under  one  head,  thereby  reducing  the 
cost.  The  work  as  at  present  performed  is  by  four  different 
Departments  independently,  thus  ti*espassing  upon  the  regular 
work  of  those  Departments,  and  probably  not  so  economically 
performed  as  it  would  be  by  one  Department  alone. 


SuperintendeTU  of  Public  Buildinga. 


BosTOK,  December  27,  1889. 
Hon.  Thomas  N.  Habt,  Mayor. 

Sib:  — In  response  to  Circular  No.  85,  the  Board  of  Trustees  of 
Mount  Hope  Cemetery  respectfully  reply  as  follows :  — 

First.  The  work  done  by  our  Department  has  been  the  usual 
work  done  in  the  Cemetery. 

Second.  The  expenditures  from  January  1,  1889,  to  January 
1,  1890,  have  been  $27,864.80. 

Tiiird.  On  January  1,  1889,  there  was  on  hand  a  balance  of 
$346.66 ;  the  City  has  only  appropriated  for  the  year  1889  the 
sum  of  $5,000;  there  will  be  unexpended  on  January  1,  1890,  a 
balance  of  $2,826.11.  The  amount  of  expenditures  was  paid, 
above  this  sum,  out  of  the  receipts  of  the  Cemetery,  and  we 
shall  be  able  to  complete  the  work  to  the  end  of  the  fiscal 
year  without  further  aid. 

Fourth.  There  are  now  employed  in  carrying  on  the  Ceme- 
tery, twenty-two  persons  who  are  paid.  The  Board  of  Trustees 
consists  of  five,  who  have  no  pay. 

President  of  Board  of  Trustees. 




Office  of  the  Citt  Clerk,  December  28,  1889. 
To  the  Mayor. 

The  work  of  this  Department  may  be  classed  under  three 
heads,  viz. : 

1.  Recording  mortgages  of  personal  property,   etc. 

2.  Recording  the   acts  of  the  City   Council. 

3.  Care   and  preparation  of  the  election  machinery,  except 
the  assessment  and  registration  of  voters. 

1.    There  have  been  received  for  record  at  this  office  from 

Janaary   1,    1889,   to    December    25,    1889,    8,263  papers    in- 

Assignments  of  Wages      •         .         •         .  616 

Married  Women's  Certificates    • 
Liens  on  Vessels 
Fence  Viewers'   Certificates 
Certificates  of  Religious  Societies 





Mortgages,  Bills  of  Sale,  etc.    . 

.     7,335 


All  these  papers  must  be  copied  in  full  upon  our  books, 
and  properly  indexed.  The  amoant  of  fees  received  for  re- 
cording the  same  are  contained  in  the  quarterly  reports  of 
the  Department. 

2.  The  City  Clerk  acts  as  the  Clerk  of  the  Board  of 
Aldermen.  We  record  the  acts  of  the  Board  of  Aldermen, 
and  prepare  an  index  thereof.  All  ps^^ers  and  documents 
presented   to    the    City    Council    are    properly   anranged    and 


filed  in  this  oflQoe.  We  make  and  send  to  the  departments, 
parties,  or  individuals  affected  thereby,  copies  of  all  papers 
passed  by  the  City  Grovernment,  seldom  less  than  two,  and 
often  four  or  even  six  copies  being  made. 

We  prepare  the  names  of  jurors,  transmitted  to  us  by  the 
Registrars  of  Voters,  for  the  Jury  box,  and  record  the  names 
of  persons  drawn. 

Ordinances  passed  by  the  City  Grovernment  are  recorded 
in  full;  also  names  of  all  streets,  notices  of  accidents  on 
the  highway,  and  certain  naturalization  notices  when  the 
papers  issue  from  Courts  other  than  United  States  Courts. 

We  issue  all  amusement  licenses,  and  receive  the  fees  for 
the  same,  there  having  been  granted  about  225  such  licenses 
from  January  1,  1889,  to  December  25,  1889.  All  minors' 
licenses  granted  by  the  Board  of  Aldermen  are  made  out  in 
this  office.  There  were  granted  from  January  1,  1889,  to 
December  25,  1889,  about  1,235  such  licenses,  divided  as 
follows:  917  newsboys,  167  pedlers,  and  151  bootblacks.  We 
receive  complaints  under  the  Statute  of  persons  assaulted  by 
dogs*  In  addition  to  the  work  above  mentioned,  there  are 
many  matters  of  detail  too  numerous  to  mention. 

3.  The  following  is  a  statement  of  the  work  of  the  City 
Clerk's  office  of  the  past  season.  In  the  latter  part  of  the 
summer  and  early  fall,  a  thorough  revision  of  a  pamphlet  of 
about  one  hundred  pages,  of  a  digest  of  the  laws  in  force  in 
relation  to  the  Assessment  and  Registration  of  V.oters,  and 
the  Conduct  of  Elections,  was  made  and  printed,  with  a 
suitable  index  to  the  same;  also  a  pamphlet  of  Instructions 
to  Election  Officers.  The  so-called  Australian  Ballot  Act  was 
also  printed,  with  a  carefully  prepared  index,  and  o,  sample 


In  September,  the  Mayor  appointed  3,432  election  officers, 
and  later,  347  more  to  fill  vacancies.  Certificates  of  appoint- 
ment were  printed,  filled  oat,  and  mailed  to  each  of  these  offi- 
cers, and  a  very  large  number  of  them  were  sworn  at  the  City 
Clerk's  office. 

The  City  Clerk  set  apart  several  evenings,  and  invited  the 
Ejection  Officers  to  meet  him  at  the  City  Hall,  that  he  might 
give  them  full  instructions  in  relation  to  their  duties,  and 
answer  any  questions  that  might  be  proposed  by  them.  These 
meetings  were  very  fully  attended,  and  apparently  appreciated 
by  the  Election  Officers,  many  of  whom  were  entirely  ignorant 
of  the  duties  imposed  upon  them.  A  great  deal  of  time  was 
also  given  by  him,  in  his  regular  office  hours,  in  furnishing  in- 
formation to  these  officers  relative  to  their  duties. 

The  division  of  the  City  into  new  precincts  entailed  the 
preparation  of  maps  of  each  of  the  new  precincts,  which  were 
prepared  under  the  supervision  of  the  City  Surveyor.  Ten 
copies  of  the  map  of  each  precinct  were  posted,  under  the 
direction  of  the  City  Clerk,  in  the  several  precincts. 

When  the  Mayor  and  Aldermen  designated  the  polling  places 
for  the  State  and  City  elections,  there  was  prepared,  and 
posted  in  ten  places  in  each  precinct,  a  printed  description  of 
the  place  so  designated,  and  also  advertisement  was  made  in  the 


daily  and  principal  Sunday  papers,  giving  a  list  of  said  places 
throughout  the  City.  When  later  changes  were  made  in  sev- 
eral of  these  places,  the  above  work,  so  far  as  it  applies  to 
the  changes,  was  done  over  again. 

Nearly  two  hundred  new  cancelling  ballot  boxes  were  obtained 
from  the  Secretary  of  the  Commonwealth,  to  meet  the  require- 
taents  of  the  additional  precincts.  Many  of  these  after  each 
election,   owing  either  to  imperfections  in  construction  or  care- 


lessness  on  the  part  of  Election  Officers,  require  more  or  less 
repairing.  A  large  number  of  pasteboard  boxes  for  transmis- 
sion to  the  City  Clerk,  of  the  ballots  cast  at  the  polls  were 
also  procured,  and  the  old  ones  on  hand  were  repaired. 

When  the  Board  of  Aldermen  direct  that  warrants  be  issued 
for  an  election,  printed  warrants  are  prepared  in  this  office,  in 
duplicate  for  every  precinct,  differing  for  the  various  wards. 
One  copy  of  each  is  served  by  constables,  by  posting  the  same 
at  or  near  every  polling  place ;  the  others,  on  which  the  con- 
stables make  their  return  of  service,  are  sent  by  the  City 
Clerk  to  the  Wardens  at  the  several  polling  places.  The 
warrants  give  the  Wardens  their  authority  for  proceeding  with 
the  election,  and  specify  the  purposes  for  which  it  is  held,  and 
the  hours  during  which  the  polls  shall  be  open.  Record  books 
and  seals  are  provided  for  the  Clerks  of  the  several  pre- 
cincts. These  books  contain  printed  forms  showing  the  man- 
ner in  which  the  books  should  be  kept,  but  sometimes  this 
form  is  apparently  not  looked  at  by  those  whose  duty  it  is  to 
make  up  the  record.  As  the  City  Treasurer  is  instructed  not 
to  pay  the  several  Clerks,  until  he  receives  certificates  from  the 
City  Clerk  that  their  duties  have  been  satisfactorily  performed, 
a  considerable  amount  of  labor  devolves  upon  this  office  in  ex- 
amining the  286  record  books. 

The  reception  and  filing  of  certificates  of  nomination  and 
nomination  papers,  hearings  on  objections  to  nominations,  and 
the  preparation  of  the  list  of  candidates  for  the  ballots  and  for 
publication  and  posting  at  City  Elections,  all  of  which  duties  are 
imposed  upon  the  City  Clerk,  are  crowded  into  a  very  limited 
period.  The  ballots  for  use  at  State  elections  are  prepared  and 
furnished  by  the  Secretary  of  the  Commonwealth. 

The  tally  sheets  for  the  use  of  the  election  officers,  and  the 


official  returns,  both  containing  the  names  of  all  the  candidates, 
can  only  be  prepared  and  printed  after  the  list  of  candidates  is 
completed.  The  official  returns  the  present  year  have  con- 
tained the  printed  names  of  all  the  candidates,  thus  insuring 
accuracy  in  the  names,  and  avoiding  the  necessity  of  notifying 

the  officers  to  call  at  the  City  Clerk-s  office,  and  correct  errors, 
a  matter  which,  in  former  years,    has   occasioned  considerable 


Envelopes  for  the  official  returns,  and  also  for  the  check 
lists,  are  made  and  printed  especially  for  the  purposes  for 
which  they  are  used. 

On  the  morning  of   each   election,   there   is  sent  by  a  police 
officer  to  each  polling  place  a  registering  and  cancelling   ballot 
box,  containing  the  following  list  of  articles:   the   warrant;   a 
package  containing  the  ballots  for  use  at  such  election,  together 
with  specimen  ballots  and  cards  of  instructions  to  be  posted  for 
the  information  of  voters ;  a  pasteboard  box  in  which  are  to  be 
returned  to  the  City  Clerk,  sealed,  the  ballots  cast,  with  a  cer- 
tificate to  that  effect  signed  by  the  election  officers;   the  official 
return    of   votes   cast  to  be    filled    out,   signed    and    returned 
to   the  City   Clerk  in  an  envelope   provided  for  the   purpose; 
an   envelope   to   contain   the    check    lists    used,   to  be  signed, 
sealed,  and  returned  to  the  City  Clerk ;  posters  quoting  the  law 
relative  to  smoking  and  use  of  liquor  in  polling  places;    copies 
of  the  Digest  of  the  Election  Laws,  and  instructions  to  election 
officers ;  hand  stamps  for  marking  ballots  which  may  be  either 
''  defective"  or  "cancelled";  pens,  ink,  pencils  for  the  election 
officers  and  for  the  voters,   sealing    wax,    writing  paper,   and 
rubber  strips  with  which  the  ballots  may  be  kept  in  separate 
bunches  whUe  being  counted;    also  tacks  with  which  to  post 
the  cards  of  instructions,  specimen  ballots,  etc. 


In  addition  to  these,  it  has  been  the  practice  for  some  years, 
to  send  to  each  precinct  a  blank  form,  styled  a  press  return, 
prepared  by  the  representatives  of  the  press,  to  be  filled  out 
with  the  votes  for  the  several  candidates,  and  returned  to  the 
City  Clerk  for  transmission  to  the  head-quarters  of  the  daily 

The  police  officer  has  a  blank  receipt  for  the  ballots  to  be 
signed  by  the  Warden,  which  is  returned  by  the  officer  to  the 
City  Clerk. 

A  blank  requisition  for  a  second  set  of  ballots  in  case  the 
first. set  is  destroyed  or  stolen,  is  also  sent  to  each  precinct. 

The  check  lists  prepared  by  the  Registrars  of  Voters  are 
also  placed  in  the  charge  of  these  officers  for  transmission  to 
the  polls.  The  police  officers  for  duty  on  election  day  are  fur- 
nished by  the  Board  of  Police,  upon  the  requisition  to  the  City 
Clerk,  and  comprise  a  large  number  of  special  officers  appointed 
for  these  days  only,  in  addition  to  a  large  detail  from  the 
regular  force.  The  officers  with  the  various  articles  committed 
to  their  care,  are  conveyed  to  the  several  polling  places  in 
carriages,  and  at  night,  are  brought  back,  with  the  cancelling 
boxes,  ballots,  official  returns,  press  returns,  and  check  liBts. 
The  requisitions  for  carriages,  and  all  other  matters  in  con« 
nection  with  the  same,  have  been  attended  to  by  the  City 
Messenger,  to  whom  and  those  under  him,  the  City  Clerk  is 
indebted  for  this  and  much  other  valuable  assistance. 

The  ballots  and  check  lists,  when  received  on  nights  of 
elections  are  locked  in  a  fire-proof  room,  with  combination 
locks,  the  combinations  being  known  only  to  the  City  Clerk 
and  his  assistant. 

The  day  following  the  election,  the  compilation  of  the 
election  returns  is  commenced  on  forms  prepared  for  the  pur- 


poBe,  and  usually  completed  in  about  three  days.  All  this 
work  is  carefully  checked  from  the  official  returns,  and  all  the 
figures  are  carefully  verified.  After  due  examination  by  the 
Board  of  Aldermen,  and  the  completion,  by  said  Board,  of  any 
recounts  legally  asked  for,  the  Board  makes  declaration  of  the 
results,  and  the  proper  certificates  are  made  and  signed  for 
transmission  by  the  City  Clerk  to  the  Secretary  of  the  Com- 
monwealth or  to  the  parties  declared  elected,  as  the  case  may 

The  pay-roU  for  services  of  election  officers  at  the  State 
election  amounts  to  about  $10,000 ;  that  for  the  City 
election,  owing  to  increase  of  compensation,  to  about  $14,300; 
together  with  about  $600  more  for  deputies  who  reported  for 
duty,  but  did  not  serve.  Other  expenses,  which  cannot  yet 
be  given  in  detail,  all  the  bills  not  yet  having  been  received, 
will  increase  the  expenditures  incurred  through  this  office  to 
the  aggregate  sum  of  about  $50,000. 

A  just  criticism  of  the  law  in  relation  to  nominations  and 
printing  of  ballots,  is  that  the  time  for  the  preparation,  print- 
ing, packing  and  sealing  is  too  limited.  A  week's  time  is 
little  enough  after  all  the  nominations  are  determined  upon,  in 
which  to  do  this  work  for  the  City  of  Boston. 

In  the  opinion  of  the  City  Clerk,  the  number  of  voting  pre- 
cincts might  well  be  reduced  from  286  to  200,  on  which  basis 
there  would  be  an  average  of  only  three  hundred  and  fifty 
male  voters  to  a  precinct.  By  such  reduction  in  number,  a 
large  amount  of  money  would  be  saved  to  the  City  in  provid- 
ing polling  places  and  fitting  them  for  occupancy,  as  well  as  a 
very  considerable  saving  in  the  sum  for  the  payment  of 
election  officers.  lie  also  thinks  that  the  number  of  election 
officers  may  be  judiciously  reduced.    Four  officers,  of  a  proper 


degree  of  intelligence  can  easily  perform  the  duties  now  im- 
posed upon  six.  By  such  proposed  reduction  in  the  number  of 
precincts  and  of  election  officers,  less  than  half  the  number  of 
election  officers  now  necessary,  would  be  appointed,  and  a  sav- 
ing of  about  $15,000  annually  might  be  made.  Two  of  the 
inspectors,  who  now  act  as  ballot  clerks,  with  an  extra  check 
list,  could  be  dispensed  with.  Their  duties  could  be  performed 
by  the  other  two  who  could  have  charge  of  the  ballots,  make 
one  kind  of  a  check  on  the  list  when  a  ballot  is  delivered  to  a 
voter,  and  another  when  he  deposits  his  ballot. 

Expense  of  this  office  in  the  calendar  year  1889 :  Twenty 
thousand  eight  hundred  sixty-three  and  -^  dollars  ($20,863.74). 

Unexpended  appropriation  for  the  remainder  of  the  fiscal 
year:  Six  thousand  three  hundred  forty-eight  and  ^^^^  dollars 
($6,348.80).  We  shall  be  able  to  complete  the  regular  work 
of  the  office  for  the  year  ending  April  80,  1889,  without 
further  appropriation. 

JRecommendcUions :  —  Public  Statutes,  chapter  37,  section  4, 
enacts  that  City  Governments  shall  provide  fire-proof  safes  of 
ample  size  for  the  preservation  of  books  of  record,  registry, 
etc.,  and  that  the  City  Clerk  shall  keep  in  the  safe  so  pro- 
vided all  such  books,  etc.  The  safe  connected  with  this  office 
is  very  small  indeed,  and  contains  a  very  small  portion  of  the 
City  records.  In  my  opinion,  it  is  not  fire-proof.  The  great 
books  of  the  City  Records  and  papers  are  arranged  on  shelves 
or  cases  about  the  rooms,  and  should  the  City  Hall  burn,  the 
City  would  lose  all  its  records  and  papers  contained  in  this 
office,  and  the  entire  registry  of  mortgages  of  personal  property, 
etc.,  would  also  be  destroyed. 

I  desire  to  say,  also,  that  the  business  of  the  Department 
has  entirely  outgrown  its  present  quarters.      We  have  scarcely 


any  room  left  to  file  away  our  papers  and  documents,  and  dur- 
ing the  months  when  we  prepare  for  elections,  we  hardly  have 
room  to   move   about.     The  arrangement   of  the  offices  is  the 
poorest  possible,  every  person  having  business  with  the  Depart- 
ment   (outside  the   registry  room)  is   obliged  to  pass  through 
the  room  occupied   by  the    clerks  who  do  the  copying.      This 
renders   it   almost  impossible  to  do  the  work  correctly,  and  as 
it  must  be   correctly  done,   the  papers   often   have  to  be  re- 
written,   causing   a   loss   of  time.      I  cannot  too  strongly  con- 
demn   the    present    accommodations.      No   sane   business  man 
would   have   every  customer  who  visits  his  store,  pass  through 
his   bookkeeper's   room,   yet  this  is  in  effect  what  takes  place 
daily  in  this  office.      The  office  is  so  crowded  that  there  is  no 
room  for  more  clerks,  yet  there  are  not  enough  to  properly  do 
the   business   of  the   office.      The   new  election  law  has  put  a 
great  amount  of  labor  upon  us,  yet  we  have  had  no  additional 
help,  and   at  times,   nearly  every  clerk  in   the  office  has  been 
working  on   election  matters,  to  the  neglect  of  the  rest  of  the 
City's   business,   and   causing   just  complaint  from  parties  and 
individuals  having  business  with  the  Department.     The  election 
has,    at   the  very  least,    put   the  work   of   the   Department  six 
weeks  behind,  and  when  the  present  force  can  hardly  keep  up 
the   regular  work,  without  interruption,   it  can   easily  be    seen 
that  we  shall  remain  behind  for  some  time. 

The  office  provided  for  the  City  Clerk  is  about  18  feet  by 
27  feet,  and  in  it  are  the  desks  of  the  City  Clerk,  the  assist- 
ant City  Clerk,  and  two  employees,  and  also  the  type-writing 
machine  which  is  continually  being  worked.  Here  also  are 
received,  on  an  average  (placing  it  low)  a  hundred  people  a 
day,  who  have  business  with  the  Department.  Of  course,  this 
number  of  people  necessitates  a  great  deal  of  talk,  all  of  which 


is  plainly  heard  by  every  one  in  the  two  offices,  and  every  one 
is  disturbed  more  or  less.  Nearly  all  the  work  of  the  last 
election  requiring  care  and  thought  was  done  after  hours  or  at 
home  by  the  City  Clerk  or  his  assistant.  I  most  strongly 
recommend  that  the  two  offices  at  present  occupied  by  the 
Superintendent  of  Public  Buildings  be  added  to  this  depart- 
ment, and  that  this  be  done  as  soon  as  possible. 

Number  of  persons  employed  in  this  Department,  16  in  all. 

The  only  ways  that  I  can  suggest  of  reducing  the  expense 
of  elections  are  to  reduce  the  number  of  polling  places  and 
the  number  of  offices  for  each  precinct,  as  hereinbefore 
stated.  Should  this  be  done,  I  doubt  if  the  ballot  boxes 
recently  furnished  by  the  State  would  be  large  enough  to  con- 
tain the  ballots  cast,  in  which  event,  the  City  might  have  to 
purchase  new  boxes. 

On  the  subject  of  elections,  there  is  much  that  might  be  said 
and  many  recommendations  that  might  be  made,  that  are  not 
included  in  the  scope  of  the  present  report. 


City  Clerk. 


Collector's  Departbient,  Crrr  Hall, 

December  28,  1889. 
To  His  ffonor  the  Mayor. 

Sir:  —  The  total  receipts  in  this  Department  from  January  1, 
1889,  to  December  24,  1889,  inclusive,  were  915,500,161.54,  from 
the  following  accounts:  — 




Cochituate  Water  Rates 

Liquor  Llceuses 

Mystic  Water  Rates 

County  of  Suffolk     . 

Sale  Beacon-Hill  Reservoir 

East  Boston  Ferries 


Sewer  Department    . 

Soldiers'  Relief 

Public  Institutions 

City  Hospital    . 

Interest     . 

Sale  of  Armory  Site 

Health  Department   . 

School  Instructors     . 


Mt.  Hope  Cemetery 


Police  Department     . 

Overseers  of  the  Poor 

Street  Department    . 

Police  Charitable  Fund 

Public  Library 

"  Legacy  J.  Ingei 

All  other  sources 

soil  Bowditch 

$11,511,154  06 

1,372,302  45 

891,064  00 

319,099  79 

302,445  28 

150,000  00 

139,443  65 

123,921  88 

90,530  78 

85,966  00 

61,926  62 

51,404  38 

48,042  92 

42,478  20 

41,415  29 

40,350  62 

27,258  91 

22,684  44 

21,582  08 

16,976  50 

15,725  26 

12,347  22 

12,379  70 

10,427  25 

10,000  00 

79,234  26 

$15,500,161  54 


A  general  anmniary  of  the  accounts  shows  that 
the  balance  of  bills  and  assessments  outstand- 
ing January  1,  1889,  were    ....      $2,675,901  78 

The  assessments  from  January  1,  1889,  to  De- 
cember 24,  1889 13,156,248  86 

Cash  Deposits  from  January  1,  1889,  to  De- 
cember 24,  1889 2,708,402  90 

Total  amount  charged  to  Collector        .         .    $18,540,553  54 

Of  this  amount,  the  Collector  is  credited  with 

Abatements    ....       $391,277  43 

Cash  paid  the  City  Treasurer  .  .    15,500,161  54 

15,891,438  97 

Balance  uncollected $2,649,114  57 

The  amount  expended  under  the  appropriation,  excluding  the 
draft  of  January  1,  1889,  and  including  that  of  January  1,  1890, 
is  $60,316.29.  The  balance  unexpended  is  $15,437.55,  sufficient 
to  continue  the  work  to  the  close  of  the  fiscal  year.  There  has 
also  been  expended  $6,290.54  on  account  of  advertising  and  ex- 
penses attending  sale  of  real  estate  for  unpaid  taxes ;  and  there 
remains  in  the  Treasury  $5,629.97  to  the  credit  of  Deeds  and 
Eeal  Estate  Advertising;  on  account  of  liquor  licenses  ($300 
allowed  by  ordinance)  there  has  been  paid  $57 ;  and  for  election 
expenses  and  charged  to  that  account  by  special  appropriation, 

By  Section  8,  Chapter  81,  Revised  Ordinances  of  1885,  the 
water  rates  of  the  Mystic  supply  are  made  payable  at  the  branch 
office  of  the  Water  Registrar  in  Charlestown.  These  rates  should 
be  paid  at  the  Collector's  office  in  City  Hall.  The  expense  at- 
tending such  a  change  would  be  added  to  the  appropriation  for 
the  Collector's  Department,  and  would  be  simply  a  transfer,  as  it 


would  lessen  by  so  mach  the  amount  now  paid  by  the  Water 
Board  on  account  of  the  Mystic  supply. 

The  uncollected  accounts  annually  reported  by  the  Collector 
as  assets,  from  the  3'ear  1822  to  August  9,  1875,  the  date  of 
the  establishment  of  this  Department,  have  been  reduced  to  a 
small  amount,  and  are  of  little  or  no  ^alue.  The  larger  por- 
tion were  outlawed  long  before  tlie  Collector's  office  was  created. 
I  would  suggest,  subject  to  your  approval,  that  the  City  Coun- 
cil consider  the  propriety  of  relieving  the  Collector  from  further 
responsibility  for  these  accounts. 

For  the  time  above  mentioned  they  amount  to  about  $250,000, 
and  there  are  other  charges  of  a  like  nature  to  the  year  1883, 
and  amounting  to  about  115,000,  which  I  recommend  for  like 


City  Collector. 


Office  of  the  Superintendent, 

December  27,  1889. 
To  His  Honor  the  Mayor. 

Sm :  —  Owing  to  an  early  spring  and  the  length  of  the  warm 
season,  the  continuous  rain-storms,  and  the  addition  of  newly 
acquired  parks,  the  ordinary  expenses  of  the  Department  were 
increased,  and,  with  many  other  demands  for  work,  I  have  ex- 
hausted the  general  appropriation.  The  amount  expended  of 
the  general  appropriation  from  January  1,  1889,  to  December 
81,  1889,  is  $76,740.84,  of  which  the  following  ai*e  the  chief 
items :  — 


Labor  and  Superintendence ^4 1,565  40 

Sods •        .        .        .  4,899  80 

Bed  Gravel 4,224  22 

Bine  Gravel,  Sand,  etc 2,707  26 

Teaming 4,163  36 

Loam 2,337  39 

Which  amount  to $59,397  48 

Leaving  a  balance  of 17,343  41 

which  has  been  expended  for  incidental  and  other  work  of  the 

Out  of  the  above  amount  of  $76,740.84  I  have  been  obliged 
to  expend  the  following  large  amounts  for  extra  work  and  nec- 
essary stock  for  which  no  provision  was  made  in  the  general 
or  special  appropriations  :  — 

Bepairs  on  Gravelled  Walks,  made  necessary  by  unusual  rain- 
storms             $6,481  75 

Bepairs  on  Concrete  Walks,  South  Boston      ....  600  00 

Street  Trees,  trimming,  removing,  etc.     .        .        ■        .        .  2,430  97 

Finishing  Franklin  Square 1,143  72 

Bepairing  bronze  railing  and  iron  fence 163  89 

Building  new  greenhouse 400  00 

Painting  fences,  Concord  and  Butland  Squares        .        .        .  128  92 
Bemoval  of  the  Gravelled  Walks  around  the  pond  in  the  Pub- 
lic  Garden,   filling  in  with  loam,  sodding,  planting  new 

shrubbery  beds,  labor,  etc. 5,200  00 

Bepairs  on  Plank  Walks,  labor,  etc.,  for  various  squares  500  00 

Court  expenses  (accident  Madison  Park)          ....  306  10 

Carriage  (new) 200  00 

Horse  purchased,  ^300;    horse  exchanged,  $100      .                 .  400  00 

$17,955  35 
The    general     appropriation     is    now     reduced    to    $625.73. 


Were  it  not  for  the  extra  work  forced  upon  me,  I  would  have 
a  balance  of  at  least  $18,581.08  on  hand,  which  amount 
would  enable  me  to  carry  on  the  work  of  the  Department 
properly  for  the  remainder  of  the  financial  year.  I  trust  the 
City  Government  will  see  its  way  clear  to  reimburse  this 
amount  to  the  Department.  I  have  deemed  it  my  duty  to 
suspend  all  the  employees  of  the  Department,  with  the  excep- 
tion of  two  or  three  persons  to  keep  the  valuable  stock  of 
plants  in  the  greenhouses  from  freezing  up. 

Under  the  Special  Appropriations,  Concord  and  Rutland 
squares  were  thoroughly  renovated  at  an  expense  of  $8,770.17, 
and  their  condition  is  entirely  satisfactory  to  residents  and 

The  sum  of  $1,000  has  been  expended  in  furnishing  a  bronze 
railing,  renovating  the  lawn,  making  walks,  grading,  etc., 
around  the  Attucks    monument. 

The  sum  of  $800  has  been  expended  for  curbing  and  other 
improvements  in  City  square,  Charlestown. 

Norris  Park,  South  Boston,  has  been  put  in  as  good  con- 
dition as  the  amounts  appropriated  therefor  at  two  different 
times,  viz. :  $5,700,  would  permit.  There  is  now  on  hand  a 
balance  of  $54.84. 

The  asphalt  tile  walk  from  Park  square  to  Park  street  has 
been  satisfactorily  completed,  at  an  expense  of  $6,000. 

On  Belmont  square,  £ast  Boston,  two  asphalt  tile  walks 
have  been  laid  at  a  cost  of  $1,300.  Balance  of  appropriation, 

The  appropriation  of  $10,000  for  Blackstone  and  Franklin 
squares  has  been  exhausted, .  and  the  additional  sum  of 
$1,143.72  has  been  expended  from  the  regular  appropriation. 
In  the  spring  it  will  be  necessary  to  incur  an  outlay  of  about 


93,000  more  for  loam  in  order  to  bring  these  squares  up  to 
their  proper  grade. 

The  little  squares  in  East  Boston  are  in  a  wretched  conditioh 
and  should  be  put  in  order. 

The  stone  curbing  around  the  pond  in  the  Public  Garden  has 
always  been  looked  upon  as  objectionable,  and  to  get  rid  of 
it  the  Board  of  Aldermen  a  few  years  ago  passed  an  order 
appropriating  $1,500  to  have  it  displaced  and  the  sward 
brought  to  the  water,  but  the  Common  Council  failed  to 
concur.  As  the  edging  has  become  disrupted,  it  should  be 
removed  and  an  appropriation,  such  as  the  Board  of  Aldermen 
passed,  should  be  made  for  filling  its  place. 

The  skaters  on  the  pond  in  the  Public  Garden  are  not  suffi- 
ciently controlled  by  official  authority.  Only  within  a  few 
years  has  the  pond  been  open  to  skating,  and  since  then  only 
have  I  had  any  serious , complaint  to  make.  I  respectfully  ask 
your  Honor  to  appoint  a  sufficient  number  of  special  officers 
for  the  public  grounds,  to  be  placed  on  duty  under  the 
Superintendent  of  Common  and  Public  Grounds. 

The  Common,  with  its  wealth  of  lawn  and  shade,  holds  its 
own  well  as  the  leading  health  spot  of  the  Department.  Its 
main  avenues,  however,  need  a  different  road-bed,  as  they  are 
always  in  a  wretched  condition  after  thaws  and  storms. 

The  removal,  relaying,  material,  and  work  on  the  plank 
walks  are  a  large  item  of  annual  expense,  and  with  the  ad- 
ditional outlay  for  red  gravel,  the  walks  of  the  Department 
are  very  expensive.  From  eleven  years*  experience  with  this 
particular  work  I  am  comdnced  that  every  walk  on  the  Com- 
mon should  be  concreted. 

The  asphalt  tiles  laid  in  the  walk  from  the  Park  square 
entrance  on  the  Common  to  West-sti'eet  gate,  and  from  there  to 


the  Park-street  gate,  have  filled  a  want  long  felt,  and  are 
generally  commended.  The  avenue  leading  from  Arlington 
street  over  the  bridge  on  the  Public  Garden  to  Charles  street, 
and  from  Charles  street  by  Monument  Hill  to  the  West-street 
asphalt  walk,  is  one  that  should  be  immediately  placed  in  the 
same  condition,  as  also  should  the  Tremont-street  mall  from 
West  street  to  Boylston  street. 

Our  street  trees  are  in  a  most  deplorable  condition. 

The  costly  tropical  plants  displayed  in  the  Public  Garden  and 
squares  during  the  past  season  have  all  been  safely  returned  to 
greenhouses,  where  they  will  remain  until  again  required  for  the 
gratification  of  the  public.  There  is  no  public  collection  of 
plants  in  this  country  to  equal  that  owned  by  the  City  of  Boston. 

Your  obedient  servant, 




Pemberton  Square,  January  1,  1890. 
To  Hia  Honor  the  Mayor, 

Sir  :  —  In  compliance  with  the  request  contained  in  your  com- 
munication of  the  23d  ultimo,  the  Commissioners  for  the  erection 
of  a  New  Court-House  for  the  use  of  the  courts  of  the  Common- 
wealth  within  and  for  the  County  of  Suffolk,  and  for  a  Registry 
of  Deeds  and  a  Registry  of  Probate  for  said  County,  have  the 
honor  to  submit  herewith  a  statement  of  the  progress  of  the  work 
under  their  charge. 

During  the  past  municipal  year,  a  marked  advance  has  been 
made  in  the  completion  of  both  the  northerly  building  and  the 
main  structure.     The  brick  and  stone  masonry  of  the  main  build- 


ing,  with  the  exception  of  that  connected  with  the  central  hall, 
is  nearly  completed,  and  the  interior  walls  are  ready  for  the 
plasterers.  The  plastering  and  stucco  work  of  the  northerly 
huilding  is  finished,  and  the  carpenters'  work  in  this  section  is  so 
far  advanced  as  to  make  possible  its  occupancy  by  July  of  the 
present  year. 

The  principal  contracts  made  during  the  year  include  those  for 
the  heating  and  ventilation,  and  the  marble  work  for  both  build- 
ings, the  plastering,  the  carpenters'  work,  and  the  plumbing  of  the 
northerly  building,  the  copper  roof,  and  the  iron  stairs  of  the  main 
building.  The  important  contracts  to  be  made  during  the  coming 
year  are  those  for  the  stone  work  of  the  vestibule  and  main  hall, 
the  carpenters'  work,  and  the  plastering  of  the  main  building. 

The  balance  of  the  appropriation  on  band  January  1,  1889, 
was $521,937  60 

The  payments  daring  the  year  have  been         ....         496,259  57 

Leaving  a  balance  on  hand  of $25,678  03 

The  total  appropriations  made  to  this  date  have  been      .        .  $2,498, 845  00 

The  payments  hare  been :  — 

For  the  site,  in  fidl $1,056,469  69 

For  construction 1,416,697  28 

Balance  on  hand 25,678  03 

$2,498,846  00 

The  contracts  made  on  account  of  the  buildings  and  the  mis- 
cellaneous expenditures  incurred  to  this  date  amount  to      .   $1,814,990  59 
On  which  there  has  been  paid,  as  already  stated,  the  sum  of  .      1,416,697  28 

Leaying  a  balance  due  contractors  for  work  in  process  of 

completion  of $398,293  81 

To  provide  for  payments  on  contracts  made  and  to  be  made, 
the  City  Council  were  requested  in  November  last,  under  the 


provisions  of   Chapter   101   of  the  Acts  of  the  Legislature  of 
1887,  to  issue  an  additional  loan  of  $800,000. 

As  required  by  law,  the  work  upon  the  buildings  is  being 
done  by  contract,  the  number  of  contractors  at  the  present 
time  being  fourteen. 

In  addition  to  the  commissioners,  there  are  employed  an 
office  janitor,  an  engineer,  and  three  assistants  for  the  heating 

Respectfully  submitted, 




Office  of  Crrr  Engineer,  City  Hall, 

December  27,  1889. 
To  His  Honor  the  Mayor.- 

Sib:  —  In  reply  to  Circular  85,  of  December  23,  1889,  the 
following  is  a  summary  of  the  work  of  the  City  Engineer's  Depart- 
ment for  the  year  1889  :  — 


The  inspection  of  the  highway  bridges  in  the  City  has  been 
made,  and  the  superintendence  of  structural  repairs  upon  those 
maintained  by  the  City  has  been  attended  to  during  the  year. 

Leyden-street  bridge,  over  the  Boston,  Revere  Beach,  &  Lynn 
R.R.,  on  Breed's  Island,  was  built  this  year.  It  is  a  substantial 
iron  bridge,  on  stone  abutments,  and  cost  $15,819.55. 

Byron-street  bridge,  in  East  Boston,  was  built  this  year.  It 
is  a  wooden  bridge  over  the  Boston,  Revere  Beach,  &  Lynn  R.R., 
and  cost  about  $4,000. 


Cottage-street  bridge  was  bailt  this  year.  It  is  a  wooden  foot- 
bridge over  flats  in  East  Boston,  is  12  feet  wide,  and  3,546 
feet  long,  extending  from  Jeffries  Point  to  Wood  Island,  and 
cost  about  $12,000. 

Bolton-street  bridge,  over  the  New  York  &  New  England  R.R. 
in  South  Boston,  was  built  this  year,  and  is  a  small  wooden 
bridge,  costing  about  $850. 

Neponset  and  Granite  bridges,  over  the  Neponset  river,  have 
had  the  passage-ways  for  vessels  widened  to  36  feet,  as  directed 
by  the  Commonwealth,  at  a  cost  of  $7,997.41  to  the  City  of 

It  will  be  necessary  to  change  four  draw-bridges  over  the 
upper  part  of  the  Charles  river  during  the  coming  year,  in  order 
to  comply  with  the  Act  of  the  Legislature. 

The  following-named  bridges  are  in  a  dangerous  condition, 
and  should  be  rebuilt :  — 

Federal-street  bridge,  over  Fort  Point  Channel ;  Chelsea-street 
bridge,  over  Chelsea  Creek ;  Ferdinand-street  bridge,  over  B.  & 
A.  R.R. ;  Berkeley-street  bridge,  over  B.  &  A.  R.R. 

Water- Works  . 

The  Wan'en  bridge  section  of  30- inch  and  16-incb  mains  to 
connect  Charlestown  with  the  Cochituate  high  and  low  service 
has   been  laid. 

A  20-inch  main  to  connect  Parker-Hill  Reservoir  with  the 
high-service  system  in  the  City  proper,  is  nearly  completed,  and 
a  16-inch  high-service  main  has  been  laid  from  Parker  street 
to  Egleston  square. 

The  laying  of  the  water-pipes  to  connect  Long  Island  with 
the  City  water  supply  shas  been  completed.. 


On  the  Ck>chituate  Division  292  hydrants  have  been  estab- 
lished and  140  abandoned. 

About  22.3  miles  of  new  mains  have  been  laid  on  the  Cochitu- 
ate  Division,  and  1.7  miles  of  old  mains  have  been  relaid.  On 
the  Mystic  Division  ^  mile  of  new  mains  has  been  laid,  and  1^ 
miles  of  old  mains  has  been  relaid. 

The  East-Boston  Pamping-station  and  the  East-Boston  sup- 
plementary high  service  for  the  supply  of  Breed's  Island  hate 
been  completed. 

Storage  Basins. 

Work  has  been  commenced  on  a  new  dam  at  the  outlet  of 
Lake  Cochituate.  Surveys  are  being  made  of  the  proposed 
basin  on  Indian  Brook,  and  for  the  development  of  Whitehill 
Fond.  The  Town  of  Framingham  has  practically  completed  its 
sewerage  system,  and  it  is  now  in  operation,  although  as  yet  but 
few  connections  have  been  made  with  it. 

The  Town  of  Marlboro'  is  actively  engaged  in  perfecting  a 
plan  for  its  sewerage  system  and  it  is  expected  that  tbey  will 
commence  construction  early  the  coming  year. 

Experimental  works  for  filtration  investigations  are  being 
established  at  the  Chestnut-Hill  Reservoir,  and  it  is  expected 
that  in  connection  with  the  biological  laboratory  much  informa- 
tion will  be  obtained  which  will  be  of  value  in  devising  methods 
for  improving  our  water  supply. 

The  dam  at  Mystic  Lake  has  been  repaired,  and  an  independ- 
ent air  pump  and  condenser  for  Engines  Nos.  1  and  2  at  the 
Mystic  Pumping-station  has  been  contracted  for. 

For  the  Park  Department  plans  and  specifications  of  various 
engineering    structures    have    been    prepared,    and   the  inspec- 


tion  and  superintendence  of  their  construction  has  been  at- 
tended to. 

At  Charlesbank  the  g^'mnastic  apparatus  has  been  erecU'd. 
Curbstones  and  paving  blocks  for  the  Parkway  and  Franklin 
Park  have  been  purchased. 

At  the  Marine  Park  four  spans  have  been  added  to  the  Iron 
Pier,  and  one  additional  span  to  connect  with  the  Pier  Head 
has  been  contracted  for. 

The  Pier  Head  is  now  being  constructed,  and  work  is  pro- 
gressing under  a  contract  for  filling  the  portion  of  the  Park 
south  of  Broadway. 

Improved   Sewerage. 

By  an  Act  of  the  Legislature  approved  May  9,  1889,  the 
Hoard  of  Aldermen  was  authorized  to  extend  the  construction 
of  the  Improved  Sewerage  System.  The  City  Engineer  was 
directed  to  proceed  with  the  necessary  surveys  and  investi- 
gations, and  on  September  30,  1889,  he  was  directed  to  pro- 
ceed with  the  construction  of  the  sewers  in  accordance  with  a 
plan  adopted  by  the  Board. 

Contracts  have  been  let  for  the  construction  of  Sections  8 
and  9  of  the  South  Boston  Intercepting  Sewer,  Section  3  of 
tlie  Dorchester  Intercepting  Sewer,  and  Section  1  of  tlie 
Brighton  Intercepting  Sewer.  Work  is  now  actively  progress- 
ing on  these  sections  and  they  will  be  completed  in  the  autumn 
of  1890.  Investigations  and  surveys  are  now  being  made  for 
the  further  extension  of  the  Intercepting  Sewers  at  the  North 
End  and  for  the  extension  of  the  Dorchester  Intercepting 
Sewer  to  Lower  Mills.  The  work  will  be  put  under  contract  dur- 
ing the  coming  spring,  so  as  to  insure   its  completion  in  1891. 

The    plan   of   the   extension   as  submitted  contemplates    the 


constniction  of  about  six  miles  of  sewers,  and  it  is  belieyed 
that  the  completion  of  this  extension  of  the  Improved  Sewerage 
System  will  remedy  many  of  the  nuisances  now  existing. 

The  actual  expenses  of  the  Engineer's  Department  from 
January  1,  1889,  to  January  1,  1890,  are  835,610.20;  of  the 
Improved  Sewerage  Extension,  $18,456.45. 

The  unexpended  appropriations  for  both  the  Engineer's  De- 
partment and  the  Improved  Sewerage  Extension  are  sufficient 
to  continue  the  work  to  the  end  of  the  fiscal  year. 

The  total  number  of  persons  now  employed  in  the  Engineer's 
Department  is  20,  and  the  total  number  on  the  Improved 
Sewerage  Extension  is  18. 

Respectfully  submitted, 


City  Engineer, 


Office  of  the  Board  of  Directors  of  East  Boston  Ferries, 

December  27,  1889. 
Hon.  Thomas  N.  Hart,  Mayor, 

Sir:  —  Id  compliance  with  your  request  for  information,  as 
stated  in  Circular  35,  the  Board  would  respectfully  report  as 
follows :  — 

1st.  Only  the  ordinary  work  has  been  done  for  the  year 

2d.  The  actual  expenses  for  the  year  have  been  as  fol- 
lows :  — 

Salaries  and  Wages <>126,764  22 

Current  Expenses 20,624  33 

Fuel 31,831  68 

Carried  forward,  $179,220  23 


Brought  forward,  $179,220  28 

Supplies 8,596  78 

Repairs  on  Boats 9,780  16 

Repairs  on  Buildings,  Drops,  and  Piers         ....  6,804  71 

Incidental  Expenses 555  90 

Vacation  for  Employees 4,062  46 

Tools  and  Fixtures 115  61 

Damages,  viz. :  — 
Paid  to  Cornelius  Roach,  order  of  City  Council,    $3,000  00 
Paid  to    Lincoln  Wharf  Co.,  on  Execution  of 

Court 8,544  97 

Paid  Claims,  order  of  Committee  on  Claims      .  963  50 

Paid  for  Medical  Attendance,  etc.       ...  18  00 

12,526  47 

Total $220,662  32 

3d.  The  unexpended  appropriation  of  $57,160.41  will  meet 
all  of  our  ordinary  expenses  to  the   end  of  the  fiscal  year. 

4th.  The  Board  would  respectfully  but  earnestly  recom- 
mend that  attention  be  called  to  the  immediate  necessity  of 
having  increased  facilities  for  this  Department,  so  that  the 
increased  travel  can  be  properly  accommodated. 

It  is  the  opinion  of  this  Board  that  a  special  appropriation 
of  $500,000  is  the  amount  actually  needed  to  make  the  desired 
improvements,  to  be  expended  as  follows :  — 

For  Property  on  each  side  of  the  North  Ferry                  .  $200,000  00 

For  two  New  Ferry-boats 100,000  00 

For  two  New  Slips 60,000  00 

For  two  New  Drops  and  Tanks 30,000  00 

For  Alterations  of  Present  Slips 20,000  00 

For  New  Head-House  on  East-Boston  side  ....  30,000  00 

For  Additions  to  Head-House  on  Boston  side              .        .  10,000  00 

For  Dredging 10,000  00 

For  Contingent  Expenses 50,000  00 

$500,000  00 


Allow  us  to  say  that  in  twenty  years  the  travel  has  in- 
creased  as   follows :  — 

From   16,070   to   27,874  foot  passengers,   daily. 
From    1,569   to   2,473   teams,    daily. 

The  recommendations  made  last  year,  for  two  New  Drops, 
New  Head-House  and  repairing  of  the  Wharf  on  the  East- 
Boston  side  of  the  North  Ferry,  we  renew  this  year,  as  they 
are   a  necessity   now,  more   than   ever. 

5th.  The  number  of  persons  employed  is  as  follows :  A 
Board  of  five  Directors,  without  pay,  and  the  following  with 
pay :  I  Clerk  of  Board,  1  Superintendent,  and  1 28  Subordi- 

Respectfully,  for  the  Board, 




•  Office  of  the  Bo^bd  of  Fire  Commissioners, 

December  27,    1*^89. 
To  His  Honor  the  Mayor, 

Sir:  —  Since  January  1,  1889,  to  date,  there  have  been  887 
alarms,  besides  the  several  alarms  that  called  almost  the  entire 
force  of  Boston  and  considerable  outside  assistance  to  the  confla- 
gration on  Thanksgiving  day.  The  loss  incident  to  these  alarms 
is  not  yet  so  far  adjusted  that  the  total  can  bo  stated  with  any 
accuracy.  Until  the  large  fire  occurred,  however,  the  loss  was 
undoubtedly  smaller  than  the  average  for  several  yeara  back. 

The  expenditures  of  the  Department  for  the  twelve  months, 
which  include  the  draft  for  January,  1890,  amount  to  $823,257.62. 
The  appropriation  for  1889-90  was  $817,862  ;  credits,  $4,675.91 ; 


total,  $822,537.91.  The  expenditures  from  May  1,  1889,  to 
date,  including  the  January  draft  were  $580,998.70 ;  balance, 
$241,539.21.  The  expenditures  in  the  Fire  Alarm  Department, 
covering  the  same  twelve  months,  were  $34,893.40 ;  appropriation 
for  1889-90,  $35,054 ;  expenditures  from  May  1,  1889,  to  date, 
$21,285.50,  leaving  a  balance  of  $13,768.50,  which  will  probably 
cover  all  demands  upon  this  branch  of  tbe  service  for  the  re- 
mainder of  the  fiscal  year. 

Previous  to  the  great  fire  of  Thanksgiving  day,  the  Commis- 
sioners expected  to  be  able  to  conduct  their  department,  with  the 
money  appropriated,  up  to  the  first  day  of  May,  1890 ;  but  that 
visitation,  it  need  hardly  be  said,  confounded  all  their  previous 
calculations,  owing  to  losses  of  apparatus  and  unusual  expendi- 
ture consequent  upon  the  extraordinary  service  that  had  to  be 
performed.  An  estimated  deficiency  has  been  submitted  to  the 
Government  of  $34,500,  to  cover  apparatus  and  equipment,  and 
$2,5' )0  for  extra  coal  and  refreshments.  With  that  assistance 
the  Department  should  be  able  to  finish  the  year,  unless  some 
unforeseen  emergency  arise. 

The  Commissioners  have  made  to  the  Citv  Council  some  com- 
prehensive  recommendations  with  a  view  to  greatly  increasing  the 
efficiency  of  this  Department,  and  their  petitions  have  been  met  in 
a  very  friendly  spirit.  These  recommendations  contemplate  a 
general  strengthening  of  the  Department  in  all  sections  of  the 
City,  and  include  a  central  headquarters,  fire-proof,  and  of  a 
capacity  to  accommodate  the  fire-alarm  system  and  the  offices  of 
the  Commissioners  and  the  Chief,  besides  several  pieces  of  nppa- 
ratus,  and  several  other  new  houses  and  companies  in  various 
sections  of  the  city.  The  amount  necessary  to  carry  out  these 
improvements  is  estimated  at  $510,000,  already  appropriated. 
This  increase  of   companies  and  apparatus  will   of  course  involve 


an  increase  in  running  expenses.  With  the  new  Department  year 
all  the  companies  in  East  Boston,  South  Boston,  Charlestown, 
Roxburj,  and  parts  of  Dorchester  should  be  made  permanent. 
The  Commissioners  have  asked  for  what  the  Department  immedi- 
ately needs  to  perform  its  own  proper  duty ;  but  they  also  ask 
your  Honor  and  the  City  Council  to  use  your  authority  to  effect 
reforms  in  the  rules  and  laws  regulating  the  width  of  streets,  the 
height  and  construction  of  buildings,  and  the  manner  of  running 
and  maintaining  all  kinds  of  electric  wires.  These  are  problems 
which  the  Commissioners  cannot  solve  unaided. 

The  total  number  of  persons  now  employed  in  this  Department 
is  695,  —  a  less  number  than  formerly,  for  the  reason  that  several 
companies  have  been  made  permanent,  thus  reducing  the  num- 
ber of  men  on  the  various  rolls. 

The  good  feeling  that  has  existed  between  all  branches  and 
grades  of  the  Department  still  continues ;  the  discipline  and 
morale  were  never  better ;  the  drill  school  has  been  productive  of 
excellent  results,  and  it  will  make  the  force  more  and  more  effi- 
cient in  the  future.  The  houses  of  the  Department  were  never 
before  in  as  good  condition  as  now,  and  with  the  double  com- 
panies, increased  service,  and  new  and  improved  apparatus  asked 
for,  the  Department  will  be  on  a  basis  to  command  the  confidence 
of  the  public  to  a  greater  extent  than  ever  before. 

For  the  Board  of  Fire  Commissioners, 





Office  of  the  Boabd, 

12  Beacox  Street,  December  28,  1889. 
To  His  Honor  the  Mayor, 
Sir: — In  compliance  with  your  request  the  Board  of  Health 

respectfully  submits  a  statement  of  the  work  performed  by 
the  Department  during  the  present  calendar  year,  the  facts  as 
to  its  financial  condition,  and  such  recommendations  as  it 
deems  proper  for  the  greater  efficiency  of  the  Department. 

The  actual  expenses  of  the  Department  for  the  calendar 
year,  excluding  the  draft  of  January  1,  1889,  but  including 
that  of  January   1,   1890,   have  been  as  follows:  — 

Board  of  Health  Salaries ^,000  00 

Clerk  Hire 9,502  18 

Messenger 698  00 

Inspectors  of  Nuisances 21,577  33 

Inspector  at  Abattoir 1,495  53 

City  Physician  and  Assistants 4,025  00 

Small-pox  Hospital 2,548  41 

Disinfection 6,697  54 

Nuisances 6,046  11 

Urinals 6,417  22 

Burial  Grounds 4,776  48 

Contingencies 2,188  B% 

Vaccination  Virus 341  08 

Horse  and  Vehicle,  Board  of  Health 631  15 

Horse  and  Vehicle,   City  Physician 991  72 

Stationery 293  86 

Printing 912  22 

Advertising 56  90 

Quarantine 16,075  07 

Public   Baths 16,084  31 

Evergreen  Cemetery 2,426  46 

Total $111,685  10 


The  unexpended  balance  of  the  appropriation  for  the  Board 
of  Health  Department,  excluding  the  January  draft,  is  $16«- 
602.23.  Owing  to  unusual  expenses  on  account  of  small-pox, 
that  item  has  exceeded  the  amount  appropriated  for  it.  An 
amount  not  exceeding  S2,500  may  be  required  to  meet  the 
expenses  of  the  financial  year  in  addition  to  the  regular  ap- 

The  foregoing  statement  relates  to  the  Board  of  Health 
appropriation  alone.  The  appropriation  for  the  Quarantine 
Department  ($16,500)  ;  that  for  the  Bathing  Department 
($16,000)  ;  and  that  for  the  Evergreen  Cemetery  ($1,500) 
will  in  each  case  be  ample  to  meet  the  expenses  in  these 
several  departments. 

The  health  of  the  City,  as  indicated  by  the  statement  of 
mortality  for  the  year,  has  suflfered  no  deterioration.  The 
total  number  of  deaths  for  the  year  1889  (estimating  the  mor- 
tality of  the  next  three  days)  is  10,146,  as  compared  with 
10,197  in  1888,  making  the  annual  death-rate  for  each  one 
thousand  inhabitants  (estimating  the  population  of  the  city 
at  420,000)  24.15  against  24.57  for  the  previous  year.  Of 
the  total  number  of  deaths,  19.56  per  cent,  were  from  causes 
which  arc  classed  as  preventable,  the  most  prevalent  of  these 
being  diphtheria,  which  accounts  for  556  deaths ;  cholera  in- 
fantum, 451  deaths;  and  typhoid  fever,  183  deaths.  There 
were  1,414  deaths  froti  consumption;  856  from  pneumonia; 
435  from  bronchitis ;  and  767  from  heart  disease.  The  deaths 
of  children  under  five  years  of  age  were  35.58  per  cent,  of 
the   total   mortality. 

There  has  been  no  epidemic  in  the  City  during  the  year, 
excepting  the  present  one  of  influenza  which,  although  not 
fatal  in  its  character  by  itself,   is  nevertheless  serious  in  the 


amount  of  sickness  and  disabUitj  which  it  is  occasioning.  It 
is  not  a  disease  which  can  be  reached  or  controlled  by  public 
health  authorities. 

8mall-pox,  from  which  the  City  had  been  exempt  for  a  long 
period,  reappeared  here  in  October  under  the  most  unfavor* 
able  circumstances.  The  ten  cases  discovered  were  in  crowded 
tenement-houses,  where  a  large  number  of  people  were  ex- 
posed to  the  contagium.  By  prompt  attention,  however,  the 
disease  was  prevented  from  spreading,  and  it  has  been  wholly 

During  the  year  the  Board  of  Health,  at  the  request  of  the 
City  Council,  made  a  special  examination  of  the  181  school- 
houses  of  the  City  with  special  reference  to  their  facilities  for 
ventilation,  and  their  condition  in  this  and  other  respects  was 
fully  set  forth  in  a  report  to  the  Honorable  City  Council.  The 
recommendations  therein  made  ought  to  receive  the  early  atten- 
tion of  the  City  Grovernment. 

The  rapidly-increasing  work  of  the  Department  calls  for  a 
larger  number  of  inspectors  than  the  Board  now  has  at  its  com- 
mand, and  in  order  to  meet  the  demands  made  upon  it  the 
Board  will  ask  for  such  an  additional  appropriation  for  the 
next  financial  year  as  wQl  enable  it  to  prosecute  its  work  more 

With  the  cooperation  of  other  Departments  the  Board  will 
also  ask  for  such  change  in  the  law  as  will  enable  the  City  to 
secure  a  better  sanitary  condition  of  the  private  i)assageways 
throughout  the  City,  which  now  receive  such  attention  only  as 
each  abutter  gives  them. 

The  Board  renews  its  recommendations  that  hospital  accom- 
modations be  provided  for  the  treatment  of  contagious  diseases, 
and  the  isolation  of  infected  persons,  such  accommodations  to 


be  under  the  Bole  charge  of  this  Board.  It  is  only  by  such 
accommodations  that  the  spread  of  these  diseases  can  be  pre- 
vented, and  the  excessive  mortality  from  them  reduced. 

The  total  number  of  persons  now  employed  in  this  Depart- 
ment is  as  follows:  — 

Board  of  Health  roll 45 

Public  Baths :  — 

In  winter  monthB 8 

Quarantine 12 

Eyergreen  Cemetery : 

In  winter  months 1 

Total  .        .        ; 60 

Following  is  a  summary  of  the  work  performed  by  the  Depart- 
ment during  the  year:  — 

The  number  of  ifispections  of  houses  and  the  places  where 
nuisances  have  been  complained  of,  is  12,853,  the  most  of  which 
have  required  more  than  three  visits. 

The  number  of  tenement  houses  examined  several  times  each 
is  6,982. 

The  number  of  school-houses  examined  is  181,  and  of  this 
number  163  were  measured  and  especially  examined  and  re- 
ported to  the  City  Council. 

The  number  of  ungrounded  complaints  against  private  prem- 
ises, 901. 

The  number  of  courts,  lanes,  yards,  vaults  and  cellars  and 
houses  disinfected  is  90,122. 

The  number  of  dwellings  found  to  be  unfit  for  habitation  and 
ordered  to  be  vacated  after  many  unsuccessful  efforts  to  obtain  a 
remedy  is  128. 


Of  the  21  pablic  urinals  the  ordinary  repairs  have  been  supple- 
mented this  season  by  the  repainting  of  ten. 

The  care  of  the  17  cemeteries  has  been  considerably  extended 
by  the  removal  of  superfluous  trees  and  shrubbery,  and  a  more 
scrupulous  cleaning  up  of  the  grounds. 

The  number  of  death  certificates  examined  and  burial  permits 
given  after  such  examinations  from  January  1,  to  December  27, 
is  10,009. 

The  number  of  permits  given  for  the  removal  of  bodies  from 
our  cemeteries  is  828. 

The  number  of  fish  pedlers'  carts  and  the  carts  of  grease  col- 
lectors examined  monthly  with  respect  to  their  cleanliness  and 
for  the  renewal  of  their  licenses  w.hich  are  granted  for  one  month 
at  a  time  is  940. 

The  number  of  petitions  received  for  the  occupancy  of  stables 
is  230,  of  which  number  33  were  granted  leave  to  withdraw. 
At  the  request  of  remonstrants  hearings  were  had  in  62  cases. 

The  matter  of  paving,  repairing  and  other  work  in  alleyways 
and  on  vacant  lots  has  required  a  large  number  of  hearings. 

The  number  of  cases  of  contagious  diseases  investigated  by  the 
City  physicians  is  2,000;  the  number  vaccinated  free  of  charge 
2,501 ;  medical  visits  in  the  county  jail  1,500;  medical  examina- 
tions of  candidates  for  Police  and  Fire  Departments  345 ;  medi- 
cal visits  at  the  Chardon-street  Home  80. 

An  examination  into  the  cause  of  death,  where  no  physician 
was  in  attendance,  was  made  in  530  cases. 

The  number  of  cases  of  contagious  diseases  among  domestic 
animals  investigated  at  the  Abattoir,  such  as  glanders  and 
hydrophobia,  is  9. 

The  Lying-in-Hospitals  and  Baby  farms,  20  in  number,  have 
been  licensed  and  inspected,  as  usual. 


The  Public  BaUi-houses,  17  in  namber,  were  placed  in  use  in 
June ;  UBed  by  780,744  persons ;  and  towed  to  winter  quarters 
for  repairs  in  October.  One  new  house  is  now  under  construc- 

The  total  number  of  vessels  inspected  in  Quarantine  is  ^1 ; 
the  number  requiring  disinfection,  12 ;  the  number  of  immi- 
grants vaccinated,  315  ;  number  of  persons  removed  from  vessels 
to  the  hospital,  9. 

The  hospitals  at  Gallop's  Island  have  been  painted  and 

The  number  of  cattle  inspected  at  the  Abattoir  is  49,657; 

Calves,  20,955;  Sheep,  398,808.     Meat  inspected:  Beef,  30,935 

lbs.;  Veal,  21,027  lbs.;   Mutton,  368,537  lbs.      Seized:  Beef, 

670  lbs. ;  Beef  livers,  188.      This  inspection,  which   has  been 

going  on  for  12  years,  has  until  October  1st,  1889,  been  done  by 

officers  not  scientifically  trained  for  the  work ;  but  on  October 

Ist,  we  instituted  a  more  careful  inspection  of  the  animals  and 

meat  by  a  graduated  veterinary  surgeon  whose  vigilance  and 

scientific  work  will  prove  of  much  value  in  detecting  unhealthy 


Very  respectfully, 

The  Board  of  Health, 

SAMUEL  H.   DURGm,  Ckairman. 


Office  of  the  Scpebimtekdemt  of  Health, 

12  Beacon  Street,  December  28,  1889. 
To  His  Honor  the  Mayor. 

Sib  :  —  In  compliance  with  your  request  of  the  23d  Inst.  I 
respectfully  submit  the  following  statement:  — 


The  work  of  the  Health  Department  has  been  of  the  usual 
routine  nature.  There  have  been  collected  during  the  past 
year  227,825  loads  of  ashes,  70,476  loads  of  dirt,  and  40,183 
loads  of  offal. 

In  the  Rozburj,  West  Rozbury,  Dorchester,  and  South 
Boston  districts  the  collection  of  ashes  and  garbage  should  be 
done  with  more  regularity.  To  do  this  work  properly,  ad- 
ditional men  and  teams  are  needed.  In  the  South  district ^ 
there  should  be  added  6  offal  teams  and  12  men,  10  ash  teams 
and   20  men';    at  the  West  district,  2   ash  teams  and  4   men, 

4  street-cleaning   teams   and  8  men;   in    the   Rosbury  district, 

5  ash  teams  and  10  men,  4  offal  teams  and  8  men. 

The  cost  of  the  additional  horses,  harnesses,  feeding,  shoeing 

horses,  and  labor,  would  be  about  $52,000. 


iStreet  Cleaning.  —  More  work  has  been  done  than  ever  be- 
fore during  the  past  year,  but  the  result  has  not  been  satis- 
factory. The  streets  cannot  be  kept  in  a  cleanly  condition 
tintil  a  stop  is  put  to  the  horse  railroads  distributing  gravel  on 
their  tracks;  the  sweeping  of  debris  from  stores  into  the 
streets;  and  the  distributing  of  advertising  cards,  handbills, 
and  posters.  These  advertisements  are  handed  to  passers-by 
and  by  them  thrown  into  the  street;  the  result  is  a  litter  of 
paper  in  the  street. 

An  additional  street-cleaning  gang  could  be  used  to  advan- 
tage. There  is  a  call  for  more  service  of  this  kind  in  portions 
of  the  City.  The  gang  necessary  for  this  work  should  be 
2  sweeping-machines,  1  water-cart,  7  carts,  and  35  men.  This 
would  cost  about  $28,000. 

This  Department  owns  three  teams  which  are  employed  in 
the  conveyance  of  prisoners  from  the  several  station-houses  to 
the  Court-House  and  the  boat.    The  teams  should  be  under  the 


charge  of  the  Board  of  Police.      I  would  suggest  that  they  be 
transferred  to  said  Board. 

It  is  necessary  that  another  Barney  Dumping  Barge  should 
be  purchased  or  leased,  and  additional  wharf  accommodation 
secured  at  once,  as  the  dumping-grounds  used  by  this  Depart- 
ment are  nearly  filled. 

A  new  offal  depot  is  needed ;  the  one  in  Bozbury,  adjoining 
the  Marcella-street  Home,  has  become  a  nuisance  to  the 
neighborhood.  The  depot  on  Albany  street  we  have  outgrown. 
A  new  depot  could  be  built  on  land  owned  by  the  City  away 
from  dwelling-houses,  which  would  be  convenient  to  both  Box- 
bury  and  City  teams'. 

The  total  number  of  persons  employed  in  this  Department  is 

The  actual  expense  of  this  Department  for  the  year  ending 
January  1,  1890,  is  $486,828.18. 

Amount  of  appropriation  1889-90       .        .        .      $500,000  00 
Amount  expended  to  January  1,  1890        .        .        334,275  82 

Balance  of  appropriation      ....      $165,724  18 
The  balance  of  the  appropriation  will  be  sufficient  to  do  the 
work  of  the  Department  to  the  end  of  the  fiscal  year. 



Superintendent  of  Health. 


Cttt  Hospital,  December  27,  1889. 
To  His  Honor  the  Mayor. 

Sib  :  — In  accordance  with  your  request  of  the  23d  inst.,  I  have 
the  honor  to  present  the  following  brief  statement  of  the  work  and 


expenditures  of  this  Department  daring  the  past   year,   from 
January  Ist  to  date:  — 

There  have  been  treated  in  the  wards  6,308  patients,  as  against 
5,800  for  the  corresponding  period  of  last  year.  The  number  of 
accidents  have  been  2,148,  as  against  1,770  for  the  previous  year. 
The  number  of  deaths  have  been  784,  as  against  776  during  1888. 

The  general  character  of  our  work  has  been,  of  course,  the 
same  as  that  in  previous  years,  and  there  has  been  no  special 
feature  worthy  of  mention  in  this  connection,  except  that  the 
number  of  accidents  and  typhoid  fever  patients  has  been  much 
lai^er  than  usual,  and  the  contagious  diseases,  especially  scarlet 
fever,  have  been  very  much  less. 

The  increasing  demand  upon  the  Hospital  for  treatment  of 
larger  numbers  of  patients  each  year,  without  a  corresponding 
increase  in  the  number  of  beds,  renders  it  necessary  that  a  selec* 
tion  of  cases  should  be  made ;  and  in  giving  the  benefits  of  tibe 
Hospital  to  those  admitted,  it  must  necessarily  follow  that  privi- 
leges are  given  to  those  who  need  it  in  the  greatest  degree,  that 
is  to  say,  those  who  are  the  most  ill.  This  renders  the  character 
of  the  service  more  active,  more  acute,  more  expensive,  and  ulti- 
mately requires  more  money  to  care  for  the  same  number  of 
patients  than  it  would  in  some  previous  years  where  larger  num- 
bers of  patients  have  not  been  so  ill,  and  did  not  require  so  much 
labor  and  care. 

There  has  been  expended,  during  the  present  calendar  year  to 
date,  $213,958.64.  The  appropriation  for  the  present  fiscal  year, 
together  with  interest  on  trust  funds,  amounts  to  $230,510.42. 
There  has  been  expended,  during  the  present  fiscal  year  to  date, 
S156,309.  The  balance  will  be  ample  to  carry  us  through  the 
present  year. 
During  the  past  year,  the  new  building  for  the  Out-patient 


DepartmeDt,  which  will  also  be  used  as  a  new  entrance  office 
to  the  Hospital,  has  been  completed.  The  appropriation  for 
famishing  came  so  late  in  the  year,  and  as  the  f umitare  neces- 
sary for  such  a  peculiar  building  had  to  be  made  to  special 
order,  the  building  is  not  yet  occupied.  I  am  happy  to  sa}-, 
however,  that  everything  is  now  nearly  ready,  and  we  shall 
undoubtedly  occupy  it  within  two  weeks.  The  appropriation  for 
this  purpose  was  $8,950.  There  has  been  expended  $3,311.85, 
leaving  a  balance  of  $5,638.65,  which  will  be  enough  to  furnish 
the  building  ready  for  use. 

It  is  confidently  expected  that  this  building  will  be  superior  to 
any  other  in  this  City,  for  the  purposes  for  which  it  is  intended, 
and  wQl  prove  of  great  value  and  use  in  the  relief  of  such  of 
the  sick  poor  as  are  not  ill  enough  to  be  received  into  the 

Most  out-patient  departments  connected  with  general  hospitals 
in  other  large  cities,  are  used  as  ^'feeders"  for  the  hospital 
wards,  and  are  largely  maintained  with  a  view  to  furnishing 
'< material"  for  the  clinical  instruction  of  medical  students.  It 
has  been  our  fixed  policy  here  to  use  our  Out-patient  Department 
as  a  relief  to  the  wards,  and  to  avoid,  if  possible,  the  admission 
of  such  patients,  thus  obviating  the  boarding  and  nursing.  It  is 
confidently  expected  that  the  arrangements  about  to  be  estab- 
lished will  enable  us  to  treat  a  larger  number  of  patients  than 


heretofore,  with  more  beneficent  results,  and  with  greater  relief 
to  the  public. 

We  have  continued  our  usual  policy  of  renovating  and  purify- 
ing the  Hospital  wards  and  various  departments  during  the  past 
year.  It  is  impossible  to  keep  a  house,  habitually  devoted  to  the 
care  of  the  sick,  in  good  sanitary  condition,  without  pursuing 


this  fixed  policy.    While  it  is  expensive  at  the  time,  it  is  an- 
doabtedly  economy  in  the  end. 

As  to  the  needs  of  the  Hospital  prospectively,  I  beg  to 
suggest  the  following,  which,  in  the  main,  have  either  been 
formally  asked  for,   or  have  been  referred  to  in  print:  — 

First:  An  electric  light  plant,  for  the  purpose  of  lighting 
the  Hospital  by  electricity.  The  arguments  in  favor  of  this 
have  been  presented  both  in  the  annual  report  of  the  Trus- 
tees and  Superintendent,  and  in  the  annual  estimates  for  this 
year  the  Trustees  asked  for  $27,000  for  the  purpose  of 
building  such  a  plant.  Our  gas  bUls  this  year  will  amount 
to  nearly  $7,000.  Every  means  has  been  attempted,  that  is 
possible,  to  reduce  the  consumption  of  gas,  but  the  entire 
establishment  must  bum,  during  every  night  of  the  year,  a 
certain  amount  of  gas;  and  a  large  amount  of  night  work, 
both  in  emergencies  and  in  the  regular  routine,  renders  it  im- 
possible to  avoid  the  use  of  a  large  amount  of  gas.  It  can 
be  readily  shown  that  the  money  expended  and  paid  to  the 
gas  companies  for  three  or  four  years'  consumption,  would 
amount  to  more  than  the  first  cost  of  a  sumptuous  electric 
plant.  The  avoidance  of  dangers  from  fire,  the  quality  of 
light,  the  greater  healthfulness  of  electric  light  over  gas  light, 
and  the  annual  cost  of  maintenance,  are  all  in  favor  of  elec- 
tricity. Nearly  all  hospitals  of  any  si^e  are  now  using 
electricity,   both  in  our  own  City,   and  in  other  cities. 

Second:  The  Annex  to  the  central  building.  In  the  esti- 
mates furnished  by  the  Trustees  for  the  present  fiscal  year, 
there  was  included  a  request  for  $18,000  for  the  purpose  of 
creating  additional  room  for  Hospital  purposes,  —  a  dining- 
room  for  Officers  and  House  Staff,  a  medical  library,  library 
for   patients,    consulting-room    for   the    Medical    and    Surgical 


Staff,    and    sundry    other    purposes.     The  Hospital  has  lately 
received  legacies  for  the  promotion  and  increase  of  the  medical 
library.       It    also    has    a    fund    for    a    medical    library    for 
patients ;    but  there  is  no  suitable  room,  owing  to  the  crowded 
condition  of  the   Hospital,    in  which  to  place  such  a  library. 
The   Administration  building    has    outgrown    its    capacity,  and 
some  relief  must  very  soon  be    had.       Such  a  building  as  has 
been    proposed    by   the    Trustees   would    accomplish  all    these 
purposes,   and  give  us  very  great  relief.    If  public  benefactors 
liberally  bestow  upon  the  Hospital  funds   for    such   purposes, 
it  would  certainly  seem  reasonable    that  the  City  should  pro- 
vide   accommodations  to  carry  out  the  wishes  of  the  donors. 
Third:    The  acquisition  of  additional  land  for  Hospital  pur- 
poses.    The  Trustees,  on  December  16th,  presented  a  memorial 
to  the  City  Council  in  regard  to  taking  possession  of  lands 
between  East  Springfield  street  and  East  Chester  park,    lying 
between  Albany  street  and  Harrison  avenue.     The  City  has  the 
right,  under  a  special  act  of  the  Legislature  of  1889,  to  take  such 
land.    It  could  never  be  acquired  at  a  more  reasonable  prioe  than 
at  the  present  time.     Land  must  inevitably  be  had,  not  only  for 
present,  but  for  the  future  wants  of  the  Hospital,  not  many  years 
hence.    The  growth  of  the  Hospital  is  evidently  in  the  direction 
of  this  land,  and  every  argument  seems  to  point  in  the  direction 
of  acquiring  this  land. 

Fourth:  A  Home  for  Convalescent  Patients.  On  September 
12th  an  Order  was  passed  by  the  City  Council,  which  was  referred 
to  the  Committee  on  the  City  Hospital,  directing  them  to  report, 
—  ^^  first,  on  the  expediency  of  establlsMng,  in  connection  with 
the  City  Hospital,  a  Home  for  convalescent  patients ;  and  second, 
to  recommend  a  suitable  site."  It  is  obvious  that  a  Convalescent 
Home  is  desirable.    Such  Homes  now  exist  in  connection  with 


other  hospitals  of  this  City,  and  althoagh  not  so  common  in  this 
oonntry  as  in  Earope,  exist  in  considerable  nambers.  It  is  im- 
possible, except  at  considerable  length,  to  foUy  show  the  difficul- 
ties incident  to  the  care  of  convalescent  cases,  after  partial 
recovery  from  acute  disease  or  injury.  The  demand  upon  the 
Hospital  for  acute  oases  and  accidents  has  become  so  great  that 
the  alternative  now  exists  either  to  refuse  the  admission  of  such 
needy  cases,  or  to  push  patients  partly  cured  or  recovered,  out  of 
the  Hospital.  There  are  very  large  numbers  of  patients  who  are 
willing  and  ready  to  resume  work  when  able,  but  are  without 
suitable  home  accommodations, — such  as  mechanics,  workmen, 
salesmen,  domestics,  and  the  like,  who  barely  have  money  enough 
for  more  than  one  or  two  weeks*  support.  The  City  has  no  place 
to  provide  for  such  cases,  other  than  to  treat  them  as  paupers, 
and  send  them  to  Rainsford's  Island.  If  a  suitable  place  existed, 
where  such  patients  could  go  and  stay  from  one  to  three  weeks, 
away  from  the  atmosphere  of  the  sick-ward,  where  they  would 
enjoy  good  air,  good  food,  and  recuperate,  on  leaving  the  Con- 
valescent Home,  they  could  immediately  resume  their  work. 

The  Trustees,  or  myself,  have  visited  about  twenty  locations 
within  the  City  limits,  and  have  spared  no  pains  and  trouble  to 
find  a  suitable  site.  The  Trustees  now,  however,  are  prepared  to 
recommend  the  purchase  of  an  estate  in  Dorchester,  near  Milton 
Lower  Mills.  The  estate  is  at  present  the  property  of  Asaph 
Churchill.  It  is  on  the  eastern  side  of  Dorchester  avenue,  and  is 
an  irregular  shaped  piece  of  653,400  feet,  running  eastward,  nearly 
to  the  Shawmut  branch  of  the  O.  C.  B.R.  The  estate  already  has 
a  three-storied  house,  occupied  by  the  present  owner,  which  cost 
$20,000.  There  are  also  bams,  and  other  out-buildings.  Part  of 
the  estate  is  improved,  and  part  is  woodland.  It  possesses  many 
points  desirable  for  the  location  of  a  Convalescent  Home.    It  is 


retired,  is  sighUj,  is  near  City  water  and  sewerage,  has  good 
views,  and  is  so  located  that  a  Convalescent  Home  could  be  bailt 
upon  it.  at  the  present  time,  leaving  sufficient  land,  where,  in  the 
future,  if  thought  desirable,  a  Home  for  Incurables  might  also  be 
buUt.  This  land  has  been  bonded  for  a  limited  time,  is  assessed 
for  $20,000,  and  the  price  asked  by  the  owner  is  $30,000. 
This,  in  the  judgment  of  the  Trustees  and  experts  who  are 
familiar  with  the  prices  of  suitable  locations,  seems  to  be  not 
only  reasonable,  but  very  cheap.  It  is  so  situated  that  patients 
could  get  into  the  horse  oars  at  the  Hospital  door  and  go  directly 
to  the  entrance  to  these  grounds. 

Fifth :  A  new  stable  has  been  recommended  for  six  consecu- 
tive years,  and  the  demand  is  more  urgent  now  than  in  any  pre- 
ceding year.  Our  accommodations  for  both  man  and  beast 
are  wretched ;  and  while  other  Departments  of  the  City  have 
asked  for  and  obtained  suitable  stable  accommodations,  our 
necessities  yet  remain. 

I  have  the  honor  to  be, 

Your  obedient  servant, 

G.  H.  M.  ROWE, 

SuperitUendewt  and  Beddenl  Physician. 


Office  of  the  Commissioners, 

14  Beacon  Street,  December  28,  1889. 
To  His  Honor  the  Mayor. 

Sir  :  —  In  compliance  with  Circular  35    I    have    the   honor 
to  present  the  following  information  and  recommendations. 


Deebt-Islakd   Institutions. 

There  have  been  no  extensive  repairs  made  at  the  Island 
daring  the  year. 

Ten  hundred  and  twenty-four  persons  who  had  been  com- 
mitted for  the  first  time  for  drunkenness,  were  pardoned  after 
serving  ten  days  each,  and  but  68  of  that  number  were  re- 

The  number  of  inmates  remaining  at  the  House  of  Industry 
this  day  is  1,149. 

The  number  of  truants  has  increased,  the  number  remain- 
ing being  89,  an  increase  of  nearly  50  per  cent.  The  same 
is  true  of  the  House  of  Reformation.  The  number  remain- 
ing this  day  is  89,  an  increase  of  nearly  50  per  cent,  over 
last  year  at  the  same  time.  The  income,  especially  in  the 
Stone  Department,   has  increased. 

Home  for  Paupebs. 

The  male  paupers  were  transferred  from  Rainsford  to  Long 
Island,  and  the  female  paupers  from  Long  Island  to  Rains- 
ford,   on  November  7th. 

The  expense  incurred  in  preparing  the  buildings  at  Rains- 
ford,  for  the  reception  of  the  females,  was  considerable, 
principally  for  new  plumbing,  steam-heating  apparatus,  and 
for  the  renovation  of  the  hospital  building,  as  well  as  for 
new  drains.  This  expenditure  was  paid  from  the  regular 

Forty-seven  (47)  inmates  were  found  at  this  Institution 
who  had  no  legal  settlement  in  Boston,  and  had  been  sup- 
ported by  the  City  for  various  periods.  They  were  trans- 
ferred to   other    places    where    they    belonged,  or,  where    no 


settlement  was  established,  to  the  care  of  the  State,  thereby 
relieving  the  City  from  their  farther  support. 

The  number  of  inmates  remaining  is  842:  Men,  378; 
women,   464. 

Cochituate  water  was  introduced  at  Long  Island  on  August 
22,  and  although  the  expense  to  the  Institution  will  be 
large,  its  convenience  and  safety  will  be   enhanced. 

The  transfer  of  male  paupers  to  Long  Island  will  furnish 
labor  for  such  inmates  as  are  able  to  work,  and  increase  the 
product  of  the  farm,  which  comprises  nearly   200  acres. 

House  of  Cobrbction. 

At  this  Institution  somewhat  extensive  repairs  have  *  been 
made,  including  new  chimneys,  new  roof,  and  overhauling 
the  drains. 

An  increase  of  income  will  be  shown  in  the  report  of  the 
year,  although  the  remuneration  for  labor  has  been  much  ob- 
structed by  recent  legislation. 

The  average  number  of  inmates  for  the  year  is  545  com- 
pared with  533   for  1888. 


To  this  Institution,  that  one  formerly  known  as  **  Retreat 
for  Insane "  has  been  added.  They  are  now  under  one 
Superintendent.  The  transfer  of  authority  was  made  on 
August  31. 

Twenty-six  patients,  whose  legal  settlements  were  in  other 
cities  and  towns,  or  who  were  State  charges,  many  of  whom 
had  been  supported  by  the  City  for  years  at  one  or  the 
other  of  the    above   Institutions,   have    been    discharged,   and 


committed    to    State    Hospitals    after     medical     examination. 
Number  remaining,  307.    Of  these  127  were  at  the  ''Retreat.'* 

Mabcella-Street  Home. 

A  new  water  main  was  laid  and  a  few  other  necessary 
repairs  were  made  here. 

An  examination  of  the  histories  of  the  inmates  is  now 
being  made,  with  a  view  to  make  proper  disposition  of  those 
who  have  no  legal  claim  for  support  by  the  City. 

The  number  of  inmates  remaining  this  day  is  384. 

Almshouse    at  Charleotowk. 

Few  changes  are  to  be  noted  at  this  Institution,  such  re- 
pairs only  as  were  necessary  for  the  comfort  of  the  inmates 
having  been  made. 

Six  (6)  inmates  without  legal  settlement  in  Boston  were 
found,    and  sent  to  the  State  Almshouse. 

Steameb  ''  J.   Putnam  Bbadlee." 

The  steamer  is  in  good  condition,  and  is  performing  daily 

Paufeb  Expenses. 

The  Board  is  paying  the  Commonwealth  for  the  support 
of  nearly  700  insane  persons  belonging  to  Boston  who  are 
at  the  various  State  Hospitals  or  boarded  out  in  families. 


The  expenditures  for  the  Institutions,  the  Steamer,  Paupers, 
and  Office  work,  beginning  with  the  February  draft  of  1889, 
and  including  the  draft  for  January,  1890,  are  as  follows:  — 


House  of  Industry #162,099  89 

LunaUc  Hospital 53,564  48 

Marcella-street  Home 49,073  08 

Retreat  for  Insane 30,824  61 

Home  for  Paupers 70,974  77 

Almshouse,  Charlestown 16,877  14 

House  of  Correction 97,661  67 

Pauper  Expenses 158,889  64 

Steamer  Expenses 20,519  90 

Office  Expenses ,  15,860  98 

$670,286  06 

Unexpendbd  Balances. 

House  of  Industry $9,955  99 

Lunatic  Hospital 18,808  60 

Marcella-street  Home 18,144  49 

Retreat  for  Insane 10,850  71 

Home  for  Paupers 20,764  58 

Almskouse,  Charlestown 8,857  14 

House  of  Correction 25,844  98 

Pauper  Expenses 22,786  87 

Steamer  Expenses 1,412  91 

Office  Expenses 5,526  79 

Total $181,902  41 

There  will  be  required  additional  appropriations,  as  follows :  — 

For  House  of  Industry $10,000  00 

For  Pauper  expenses 15,000  00 

$25,000  00 

The  above  amounts,  with  the  transfers  of  unexpended  balances 
from  other  Institutions  under  our  charge,  to  the  appropriation 
for  the  House  of  Industry,  in  the  judgment  of  the  Board  will 
be  sufBcient  for  the  remainder  of  the  present  fiscal  year. 

The  Commonwealth  presented  a  bill  against  the  City  for  the 


care  of  insane  persons,  amounting  to  $24,717.59,  which  accumu- 
lated from  May,  1884,  to  October,  1888 ;  provision  should  be 
made  for  its  payment  at  an  early  day.  A  request  was  made 
for  the  amount  by  our  predecessors,  but  the  City  Council  failed 
to  make  the  appropriation  therefor. 

The  Board  would  recommend  an  amendment  to  Chapter  22,  Acts 
of  1886,  by  which  those  now  in  the  House  of  Reformation  may 
also  be  removed  from  association  with  adult  criminals,  and  pro* 
vided  for,  if  deemed  expedient,  in  a  separate  building,  but  in 
the  same  enclosure  as  the  truants,  to  be  cared  for  under  the 
general  supervision  of  one  superintendent. 

A  new  Hospital  is  imperatively  needed  on  Long  or  Rainsf ord 
Island.  The  number  of  cases  requiring  hospital  treatment  now 
number  150,  and  the  present  accommodations  are  not  sufficient. 

The  necessity  of  a  new  Lunatic  Hospital  has  been  made  a 
matter  of  recommendation  by  our  predecessors  for  more  than 
twenty  years.  This  Board  is  now  preparing  a  reply  to  a  re- 
quest of  the  City  Couucil  '^to  give  an  opinion  on  the  needs  of 
a  new  Hospital,"  which  will  be  forwarded  without  delay. 

The  Board  recommends  that  a  sewer  be  built  from  the  build- 
ings at  the  Retreat  for  the  Insane,  to  connect  with  the  main 

If  the  House  of  Correction  is  to  remain  in  its  present  loca- 
tion, it  is  recommended  that  a  new  wing  be  built,  and  a 
separate  building  be  erected  to  contain  cells  for  noisy  and 
refractory  prisoners,  as  the  present  solitaires  are  poorly  located, 
and  insufficient  in  number  and  size. 

The  number  of  persons  employed  in  this  Department  is  293. 

Respectfully  submitted. 

For  the  Board, 




Officb  of  the  Superintekdekt, 

December  28,  1889. 
Hon.  Thomas  N.  Hart,  Mayor. 

Sir: — The  year  1889  has  been  one  of  great  activity  in  the 
Lamp  Department.  There  have  been  located  the  past  year  94 
electric  lights,  making  a  total  of  798  now  in  use. 

A  very  large  number  of  gas  lamps  has  been  discontinued  in 
consequence  of  the  location  of  the  electric  lights  during  the  year. 
Some  have  been  transferred  to  the  rapidly  growing  wards  of  the 
city.  Yet  the  total  number  of  gas  lamps  is  9,874,  against 
10,104  a  year  ago,  or  230  less  than  a  year  ago. 

A  very  large  number  of  oil  lamps  have  been  located  in  the 
suburban  districts,  and  a  large  number  of  those  previously  exist- 
ing have  been  changed  from  oil  to  gas,  so  that  the  total  number 
is  now  about  the  same  as  a  year  ago. 

That  a  very  large  amount  of  work  has  been  done  in  the  loca- 
tion of  new  lamps  may  be  judged  by  the  fact  that  the  amount 
expended  for  underground  work,  such  as  laying  pipe  and  setting 
posts,  is  97,491.97,  the  largest  since  1877. 

The  expenditures  of  the  Department  for  the  calendar  year 
have  been  $593,499.17,  as  against  $548,714.53  in  1888. 

The  appropriation  for  the  fiscal  year,  which  ends  on 

the  30th  of  April  next,  is      ...        .   $593,081  00 
Amount  expended 418,735  40 

Balance  unexpended $174,345  60 

The  amount  expended  in  1889,  from  January  to  April  30,  was 


$175,062.83.  The  balance  of  the  appropriation  will  be  sufficient 
to  meet  the  anticipated  expenditures  for  the  remainder  of  the 
year,  notwithstanding  the  largely  increased  number  of  electric: 
lights  now  existing. 

I  would  respectfully  suggest,  that  if  a  statute  law  could  be 
enacted,  making  a  crime,  with  a  suitable  penalty  attached,  o£i 
the  malicious  breaking  of  the  public  lamps,  it  would  have  a  good* 
effect  in  all  Cities  and  Towns  of  the  Commonwealth. 

An  ordinance  providing  that  no  posts  shall  be  erected  in  the- 
streets  within  10  feet  of  any  public  lamp  post,  would  prevent' 
many  obstructions  to  the  lighting  of  the  streets. 

Ordinances  substantially  of  this  character  are  in-  existence  in 
New  York. 

The  number  of  persons  employed  in  this  Department  at  the 
present  time  is  161,  viz. :  — 

Superintendent 1 

Clerks 2 

Drivers 3 

Repairers 3 

Hostler 1 

Lamplighters 151 

Respectfully  submitted, 

Superintendent  of  Lamps. 



Office  of  the  Corporation  Counsel,  December  28,  1889. 
Hon.  Thomas  N.  Hart,  Mayor. 

Sir  :  —  In  reply  to  Circular  No.  35,  I  have  the  honor  to 
report  that :  — 

1.  The  actual  work  of  the  Law  Department  during  the  year 
1889  has  been  its  usual  and  regular  work,  much  increased,  how- 
ever, in  several  directions,  especially  in  matters  and  questions 
under  the  Ballot  Act,  and  in  matters  connected  with  the  Charles- 
river  bridges ;  and  also  in  the  work  (by  order  of  the  City 
Council)  of  revising  the  Ordinances  of  the  City. 

2.  The  actual  expenses  were  $27,399.45. 

3.  The  unexpended  balance,  $7,700,  is  expected  to  be  suffi- 
cient for  the  remainder  of  the  financial  year. 

4.  We  have  no  special  recommendations  to  submit. 

5.  The  total   number  employed   (including  a  messenger)  is 


Respectfully  submitted, 


Corporation   Counsel. 


Public  Libraut,  December  28,  1889. 
To  His  Honor  Thomas  N.  Hart,  Mayor. 

Sir: — The  Trustees  of  the  Public  Library  of  the  City  of 
Boston  have  the  honor  to  acknowledge  the  receipt  of  Circular 
No.  35  from  your  office,  dated  the  23d  of  December,  and  in 
reply,  to  report  as  follows: 

There  were  added  to  the  Library  during  the  eleven  months 


ending  December  iBt,  21,817  Tolames,  making  the  whole  number 
of  Tolumes,  exclusive  of  unbound  books  and  pamphlets  in  the 
Library  on  that  date,  526,727. 

There  were  loaned  from  the  Library  during  the  eleven  months 
ending  December  1st,  972,238  volumes,  or  50,167  more  than 
during  the  same  period  last  year.  During  the  same  time  there 
were  loaned  for  use  in  the  reading  rooms  562,586  periodicals,  an 
increase  of  45,642  in  eleven  months. 

The  number  of  books  bound  during  the  eleven  months  ending 
December  1st,  was  26,234.  The  number  of  volumes  catalogued 
during  the  same  period  was  about  80,000.  During  eleven  months 
15,203  persons  have  been  registered  and  received  cards  entitling 
them  to  draw  books  from  the  Library  for  home  use.  The 
whole  number  of  persona  registered  is  68,308. 

On  the  11th  of  March  a  new  delivery  station  was  opened  at 
Allston,  so  that  there  are  now  eight  branch  libraries  and  eight 
delivery  stations.  Three  of  the  delivery  stations  have  reading 
rooms  attached  to  them. 

The  Library  force  has  not  been  increased  during  the  year,  and 
it  consists  at  present  of  158  persons,  including  the  five  Trustees 
who  serve  without  compensation. 

On  December  16  Bates  Hall  was  opened  in  the  evening  for  the 
first  time  in  the  history  of  the  Library.  The  attendance  has 
been  satisfactory,  and  indicates  that  the  opening  of  the  Hall  in 
the  evening  was  a  wise  measure,  which  will  prove  a  public 

The  amount  expended  for  the  Library  for  twelve  months, 
excluding  the  draft  of  January  1,  1889,  and  including  that  of 
January  1,  1890,  was  $149,527.96.  The  unexpended  appropria- 
tion is  $34,888.  The  work  of  the  Library  for  the  remainder 
of  the  fiscal  year  cannot  be  properly  and  efficiently  performed 


with  the  present  available  appropriation.  The  Library  has  in- 
creased in  size  and  use  so  rapidly  that  the  sum  which  some  years 
since  would  have  been  ample  for  all  purposes,  is  now  utterly 
inadequate.  At  the  beginning  of  the  financial  year  the  Trustees 
•0cA)mitted  to  the  City  Government  a  careful  and  economical 
estimate  of  the  sum  of  money  needed  for  the  year.  Owing  to 
the  exigencies  of  the  City  finances  the  sum  appropriated  was 
120,000  less  than  this  estimate,  which  time  has  shown  was  under, 
rather  than  above,  the  amount  needed.  The  Trustees  are  there* 
fore  obliged  to  ask  for  an  additional  appropriation  of  $25,000 
for  current  expenses,  in  order  to  enable  them  to  carry  on  the 
work  of  the  Library  efficiently  and  properly  during  the  remainder 
of  the  finapcial  year.  A  considerable  part  of  the  increase  re- 
quired over  the  estimate  is  due  to  the  sum  which,  in  light  of 
late  events,  the  Trustees  consider  of  absolute  necessity  to  expend 
in  order  to  guard  the  priceless  treasures  of  the  Library  against 
danger  from  fire.  The  other  main  items  for  which  there  is  urgent 
need  of  an  additional  appropriation  are,  briefly,  the  purchase  of 
books,  lighting,  binding,  transportation,  printing  the  Bulletin  and 
catalogues,  preparing  maps,  and  providing  conveniences  for  using 
^em  properly,  extra  service  to  catalogue  and  locate  the  books 
received  and  bound  during  the  year. 

The  Trustees  desire  to  call  the  attention  of  your  Honor  to  the 
sale  at  auction,  on  the  Sd  of  February  next,  in  New  York,  of 
the  most  important  collection  of  books  relating  to  American 
history  ever  yet  sold.  This  library  was  collected  by  the  late 
Samuel  L.  M.  Barlow  and  has  a  world-wide  reputation. 

The  basis  of  the  collection  was  formed  by  the  late  Colonel 
Aspinwall,  of  Boston,  who  was  consul  at  London  from  1816  to 
1854,  where  he  had  unequalled  opportunities  for  obtaining  rare 
books  relating  to  America.    After  Mr.  Barlow  became  owner  of 


Colonel  Aspinwall's  colleotlon  some  years  since,  he  applied  his 
ample  income  to  its  enlargement  and  completion,  and  the  disper- 
sion of  several  old  libraries  in  England  afforded  him  facilities 
not  enjoyed  by  Colonel  Aspinwall. 

The  catalogue  contains  1,784  titles  of  books  and  manuscripts, 
a  large  number  of  which  are  not  found  in  the  Public  Library, 
but  which  are  highly  necessary  to  enable  it  to  maintain  its  rank 
among  the  great  libraries  of  the  world  and  to  meet  the  just 
demands  of  the  people  of  Boston,  and  to  add  to  the  attractions 
of  the  Library.  Any  account  of  the  Barlow  Library,  save  the 
most  general,  would  be  out  of  place  here.  It  is  perhaps  sufficient 
to  say  that  it  covers  the  whole  field  of  American  history  from 
Columbus  to  the  present  day,  and  could  it  be  placed  in  the  Public 
Library  beside  the  Barton  Collection  of  Shakspeariana,  the 
Ticknor  Collection  of  Spanish  literature,  the  Quincy  and  Everett 
collections  of  Congressional  Documents,  and  the  Bowditch  Collec- 
tion of  Mathematics,  it  would  not  only  add  to  its  symmetry  but 
to  its  use  and  prestige. 

An  opportunity  to  purchase  such  books  is  not  likely  soon,  if 
ever,  to  occur  again.  It  would  therefore  be  a  breach  of  duty  on 
the  part  of  the  Trustees  if  they  did  not  lay  the  matter  before 
your  Honor,  and  respectfully  advise  and  urge  that  suitable  and 
special  appropriation  be  made  to  enable  them  to  secure  such  part 
of  the  Barlow  Library  as  is  necessary  for  the  purposes  before 

The  New  Librabt  Building. 

Work  on  the  new  Library  building,  which  was  suspended  on 
the  25th  of  December,  1888,  was  resumed  on  the  15th  of  March 
last,  and  since  that  time  has  proceeded  satisfactorily.  The  walls 
have  now  reached  the  level  of  the  Bates-Hall  windows.    Contracts 


have  been  made  for  substantially  all  the  stone  and  brick  work, 
which  is  to  be  completed  by  the  1st  of  January,  1891,  when  the 
Trustees  hope  that  the  building  will  be  roofed  in. 

The  amount  expended  upon  the  new  Library  buQding  during 
the  past  year  (excluding  the  draft  of  January  1,  1889,  and  in- 
cluding that  of  January  1,  1890)  was  $311,839.24;  the  amount 
previously  expended  was  $95,696.08 ;  making  a  total  expenditure 
to  January  1,  1890,  of  $407,535.32. 


The  amount  appropriated  by  order  approved  May  12,  1888,  was 
$368,854.89;  and  by  order  approved  March  18,  1889,  was 
$1,000,000;  making  a  total  appropriation  of  $1,368,854.89. 

Ck>ntracts  are  already  awarded  to  the  amount  of  $790,185.24; 
leaving  an  available  balance  of  $171,134.33. 

The  Teustkes  of  the  Public  Library 

OF  THE  Crrr  of  Boston,  by 

S.  A.  B.  ABBOTT, 



Office  of  the  Superintendent,  Faneuil  Hall  Market, 

December  28,  1889. 
Hon.  Thomas  N.  Hart,  Mayor. 

Sir  :  —  In  reply  to  your  communication  of  the  23d  inst. 
I  would  respectfuUy  report  that  the  portion  of  the  buildings 
used  for  Market  purposes  is  in  good  repair.  Many  improve- 
ments,  which  have  been  made  at  the  expense  of  the  lessees, 
have  been  completed  during  the  year.  The  rents  are  paid 
promptly.  The  regulations  of  the  Market  are  cheerfully  com- 
plied with,  and  its  well-established  reputation  for  honorable 
and  fair  dealing  fully  sustained.  There  should  be  at  an 
early  day  some  arrangements  made  for  an  improved  system 
for  the  drainage  of  the  Market,  as  that  in  use  at  the  pres- 


ent  time  is  not  what  it  should  be.  The  gas-pipes  in  the 
Market  are  in  bad  condition,  having  been  in  use  for  many 
years,  and  being  badly  corroded,  owing  to  the  dampness  and 
large  quantities  of  salt  used  about  the  building.  The  experi- 
ment of ^  lighting  the  passage-ways  of  the  Market  with  incan- 
descent lights  is  now  being  tried,  and  gives  general  satis- 

The  income  from  the  Market  Department  for  the  fiscal 
year  1889-90  will  be  $85,400.  The  expenditures  for  this 
Department  for  the  calendar  year  1889  have  been  $9,626.87. 
The  appropriation  for  the  fiscal  year  1889-90  is  $9,750, 
which  includes  the  amounts  paid  for  salaries,  gas,  water,  and 
incidental  expenses.  Of  this  sum  there  remains  unexpended 
$2,734.11,  which  will  be  sufficient  to  meet  the  wants  of  the 
Department  for  the  balance  of  the  year.  The  pay  of  the 
police-officers  of  this  Department  ($3  per  day)  has  always 
been  regulated  by  that  paid  the  regular  police  force,  and  as 
their  labors  are  as  arduous  in  every  respect  as  those  of  the 
regular  police,  I  would  recommend  that  an  increase  be  granted 
them  for  the  ensuing  year. 

There  are  now  employed  in  this  Department,-— 

One  Superintendent, 

One  Deputy  Superintendent, 

One  Weigher  at  City  Scales, 

Three  Department  policemen,  and 

One  watchman  for  extra  duty. 


Superintendent  of  the  FaneuU  HaU  Market. 



Office  of  ths  Crrr  Messenger,  Citt  Haix, 

December  27,  1889. 

Hon.  Thomas  N.  Habt,  Mayor  of  the  OUy  of  Bofion, 

Sir: — In  reply  to  Circular  35,  dated  December  23,1  would 
respectfully  submit  answers  to  questions,  as  follows:  — 

1st.  The  ordinary  work  done  by  this  Department  for  the 
calendar  year  1889  has  been  the  general  care  and  cleaning  of 
City  Hall;  attendance  at  the  meetings  of  both  branches  of  the 
City  Council  and  numerous  committee  meetings,  several  of 
which  have  held  very  late  sessions;  the  care,  custody,  and 
delivery  of  all  City  documents,  pamphlets,  and  minutes  of  the 
City  Council,  printed  for  the  use  of  the  Council,  and  also  the 
care,  custody,  and  delivery  of  the  nineteen  volumes  of  the 
Record  Commissioners'  Reports  and  reprints,  and  keeping  a 
record  of  each  book  delivered.  The  total  number  of  meetings 
of  the  Board  of  Aldermen  for  the  present  year  is  58,  total 
number  of  meetings  of  the  Common  Council  40,  total  number 
of  committee  meetings,  up  to  December  28,  inclusive,  1,175. 
The  extraordinary  work  performed  by  this  Department  has  been 
the  caring  for  and  displaying  of  the  City  flags  on  all  public 
holidays,  etc.,  and  caring  for  ropes  and  stakes  used  on  public 
holidays  and  other  days  by  the  military  and  other  organizations. 
Two  new  flag-stafifs  have  been  erected,  and  one  repaired. 
Extra  work  has  been  performed  by  this  Department  in  connec- 
tion with  the  reception  of  the  City's  guests,  namely:  The 
President  of  the  United  States,  the  International  American 
Congress,  the  Mayors'  Club,  the  officers  of  the  United-States 
Squadron  of  Evolution,   aud  others.      On  the   17th   of   June, 


the  Fourth  of  July,  and  the  recent  State  and  City  elections,  a 
large  amount  of  extra  work  has  been  performed  by  this  De- 

2d.  The  actual  expense  of  this  Department  for  the  past 
year,  including  the  January  draft  for  the  year  1890,  has  been 

8d.  The  unexpended  appropriation  for  this  Department, 
January  1,  1890,   amounts  to   $6,218.77. 

4th.  I  would  respectfully  recommend  that  the  dome  and 
upper  stories  of  City  Hall  be  made  fire-proof,  for,  if  a  fire 
should  occur  at  any  time  in  the  dome  of  this  building,  it  would 
be  liable  to  do  considerable  damage  before  the  same  could  be 
extinguished.  Frequently,  fires  have  occurred  in  City  Hall, 
caused  by  electric-light  wires  coming  in  contact  with  other 
wires.  Within  the  past  few  days  I  have  caused  all  telephone 
wires  running  into  City  Hail,  except  those  used  by  the  Fire 
Department,  to  be  supplied  with  a  patent  safety  fuse,  as  a 
protection  against  fire. 

5th.  The  total  number  of  persons  employed  in  this  Depart- 
ment is  19,  all  of  whom  receive  salaries,  and,  in  addition  to 
this  number,  there  are  2  Lieutenants  of  Police  and  5  house 
watchmen,  who,  by  ordinance,  are  placed  in  charge  of  this 
Department,  to  protect  City  Hall,  and  to  preserve  order  in  any 
part  thereof.  The  two  Lieutenants  receive  a  sum  of  $200  each 
per  annum  from  this  Department,  for  attending  the  meetings 
of  the  Board  of  Aldermen  and  Common  Council. 

Respectfully  submitted, 


CUy  Messenger. 



Inspector's  Office,  December  27,  1889. 
Hon.  Thomas  N.  Hart,  Mayor  of  Boston. 

Sir  :  —  I  have  the  honor  to  submit  the  following  brief  report 
of  the  work  of  the  Department  of  Inspection  of  Milk  and  Vinegar 
for  the  year  1889. 

During  the  past  twelve  months  nearlj  twelve  thousand  samples 
of  milk,  butter,  and  vinegar  have  been  collected  and  subjected 
to  examination.  In  the  obtaining  of  these  samples  all  parts  of 
the  City  have  been  constantly  visited  by  the  collectors  employed 
by  the  Department.  When  analysis  has  shown  the  articles  to  be 
not  of  good  standard  quality,  such  action  has  been  taken  in  each 
case  as  has  seemed  advisable  to  bring  about  improvement  in 
the  future. 

To  this  end  535  warnings  have  been  issued,  and  817  com- 
plaints have  been  entered  in  the  courts. 

As  a  result  of  these  complaints,  between  seven  and  eight 
thousand  dollars  have  thus  far  been  paid  in  fines,  and  at  the 
same  time  a  great  improvement  has  been  observed  in  the  quality 
of  milk  and  vinegar,  particularly  in  certain  districts  where 
hitherto  adulteration  has  been  extensively  practised. 

The  number  of  licenses  issued  to  dealers  in  milk  and  oleomar- 
garine since  January  1  is  1,198,  for  which  $599  have  been 

The  expenditures  of  the  Department  have  amounted  to 
89,478.20,  and  the  unexpended  balance  of  the  appropriation, 
$2,055.82,  will  be  sufficient  for  the  proper  continuance  of  the 
work  to  the  end  of  the  fiscal  year. 

There  are  at  present  employed  by  the  Department,  in  addition 
to  the  Inspector,  a  derk,  a  chemist,  and  two  collectors. 


To  increase  the  efficiency  of  the  work,  I  would  recommend 
that  the  Department  be  provided  with  a  horse  and  wagon  for 
the  use  of  the  collectors.  As  must  be  evident,  the  latter  being 
on  foot,  are  at  a  great  disadvantage  in  collecting  samples  from 
wagons  whose  drivers  may,  and  often  do,  whip  up  their  horses 
to  escape  inspection.  In  certain  outlying  districts  it  is  impos- 
sible to  make  early  morning  collections  without  a  conveyance, 
and  at  present  this  is  done  with  the  aid  of  a  herdic,  the  expense 
of  which  is  not  inconsiderable. 


Inspector  of  Milk  and  Vinegar. 


Commissioners'  Office,  85  Milk  Street, 

December  28,  1889. 
Hon,  Thomas  N.  Hart,  Mayor, 

Sir  :  —  In  reply  to  your  request  for  information  regarding 
the  operations  of  the  Department,  for  the  past  year,  as 
called  for  by  circular  letter  No.  35,  for  publication  with  the 
inaugural  address,  the  Board  has  the  honor  to  submit  the  fol- 
lowing :  — 

The  actual  work  done  by  the  Department  in  the  calendar 
year   1889  is  as  follows :  — 

Wood  Island  Parkj  East  Boston.  —  The  approaches  from 
Neptune  bridge  on  the  Park  grounds  have  been  partially 
graded  with  material  taken  from  the  site  of  the  proposed 
play-ground  on  the  northerly  slope  of  the  park.  The  work 
is  being    done    under    a    new    laying  out    by  the    landscape 


architects,  which  will  effect  a  saving  in  the  construction  of 
the  park. 

Marine  Park,  —  The  pier-head,  a  contract  for  which  was 
let  early  in  the  season,  is  nearly  completed.  Foar  spans 
haye  been  added  to  the  iron  pier,  and  a  contract  has  been 
made  for  the  remaining  span  to  be  placed  in  position  when 
the  pier-head  is  finished.  The  Board  has  made  a  contract 
for  200,000  cubic  yards  of  filling  under  which  about  20,000 
cubic  yards  have  been  deposited. 

Charleahank.  —  The  grading  and  planting  has  been  finished, 
the  Gymnasium  completed  and  opened  to  the  public,  a  build- 
ing for  use  in  connection  with  the  Gymnasium  and  for  ad- 
ministration purposes  erected.  Gas  lamps  have  been  placed 
along  the  embankment  wall,  and  one  hundred  park-settees 
arranged  along  the  walks.  The  girls'  Gymnasium  ground  is 
ready  for  the  building  and  the  apparatus,  and  the  children's 
pl^y-gi^ound  is  nearly  completed. 

The  Parkway f  Back  Bay  Fens.  —  Audubon  road  on  the 
westerly  side  of  the  upper  basin  has  been  finished  for  a 
distance  of  1,700  feet  from  Agassiz  road,  and  the  adjoining 
slopes  and  large  island  planted.  On  the  easterly  side  the 
slopes  have  been  completed  and  mostly  planted  from  Agassiz 
bridge  to  the  new  Stony-Brook  outlet,  the  walk  graded  and 
partly  built,  and,  except  for  a  short  distance  near  the  Stony- 
Brook  outlet,  the  slopes  around  the  southerly  side  of  the  basin 
to  the  location  of  the  Fen  bridge  have  been  graded  and 
loamed  ready  for  planting.  The  walk  on  this  side  has  also 
been  graded.  The  channel  has  been  dredged  and  the  shores 
completed  up  to  the  proposed  Fen  bridge  at  the  point  where 
the  Parkway  is  to  turn  towards  Brookline  avenue.  Excavations 
for  the  foundations  of  the  bridge  have  also  been  made.    The 


curbstones  and  paving  blocks  for  the  Fenway  trom  Agassiz 
road  to  the  new  outlet  of  Stony  Brook  have  been  pur« 
chased,  and  are  on  the  ground,  and  a  large  amount  of  road 
material  has  been  prepared  for  use  next  year.  The  Sewer 
Department  has  also  partly  built  the  abutments  and  ^ers 
for  the  Stony-Brook  bridge.  The  question  occurs  whether 
the  Sewer  Department  is  to  build  this  brieve.  The  Board  does 
not  see  how  this  work  can  be  said  to  belong  to  the  Park  De- 
partment, inasmuch  as  Stony  Brook  was  led  into  the  Parkway 
at  this  point  by  the  Sewer  Department,  and  this  necessitated 
the  bridge,  there  being  already  another  ohannd  of  Stony 
Brook  into  the  Fens. 

Arnold  Arboretum,  —  The  driveway  from  the  present  drive 
to  Walter  street  has  been  graded  for  about  three-quarters 
of  the  distance,  —  about  2,000  feet,  —  including  the  building  of 
one  culvert. 

Franklin  Park. —  The  Playstead  Shelter  and  the  grounds  and 
walks  about  it  were  finished,  and,  together  with  the  Play- 
stead,  were  opened  to  the  public  on  the  12th  of  June  with  ap- 
propriate ceremonies. 

The  Walnut-avenue  entrances  were  also  finished  early  in  the 
season,  and  the  grounds  about  them  planted.  A  rustic  foun- 
tain of  field-stone,  supplied  with  water  from  a  neighboring 
spring,  was  erected  near  the  Playstead  road. 

The  old  Trail  road  entering  the  park  from  Seaver  street, 
opposite  Humboldt  avenue,  has  been  finished  and  the  slopes 

The  Valley  Gate  to  the  Country  Park  and  about  3,500  feet 
of  the  park  wall  on  the  line  of  Glen  lane  have  been  com- 
pleted. Glen  lane  (for  heavy  traffic)  has  been  graded  for 
two-thirds  of   the  distance    across   the  Park,  and  about  half 


the  whole  length  of  the  road  macadamized  and  furnished 
with  edgestones  and  gutters. 

The  Circuit  drive  has  been  completed  and  opened  to  travel 
from  the  Valley  gate  to  Walnut  avenue  near  Ellicott  street 
—  about  one-half  mile  —  the  slopes  graded  and  some  of  the 
adjacent  walks  built.  This  included  Ellicott  Arch  which  car- 
ries the  drive  and  ride  over  the  walk  from  Williams-street 
entrance  to  Ellicottdale.  The  ride  has  been  partly  subgraded 
along  this  part  of  the  Circuit  drive. 

The  Circuit  drive  from  Walnut  avenue,  near  Ellicott  street, 
has  been  subgraded  to  the  road  leading  to  the  dairy  and  Scar- 
borough HUl,  and  the  subgrading  of  this  road  is  now  in 

Ellicottdale  has  been  cleared  of  stone,  drained  and  mostly 

The  upper  part  of  the  valley  southerly  from  the  Valley  gate, 
including  the  old  location  of  Williams  street,  has  been  cleared 
and  graded,  and  the  main  line  of  the  Park  drainage  has  been 

There  is  but  little  more  required  to  finish  the  surface  of  the 
Country  Park,  as  it  is  designed  to  be  left  for  use  by  the  public, 
and  the  Board  hopes  that  it  can  be  finished  next  season,  not 
including  the  circuit  drive  from  Scarborough  Hill  around  the 
southerly  and  easterly  sides  to  Glen  lane. 

A  flock  of  56  sheep  has  been  obtained  for  the  Country  Park, 
and  a  temporary  sheep-fold  provided. 

The  actual  expenses  of  the  Department  for  1889  were:  — 


Foe  Park  Construction, 

Franklin  Park «229,242  66 

Back  Bay  Fens 98»397  08 

Marine  Park 90,796  13 

Charlesbank 25,923  04 

Arnold  Arboretom 9,029  iX 

Wood  Island  Park 7,569  98 

9460,958  30 

Fob  Park  Maintenance. 

Franklin  Park 917,228  22 

Back  Bay  Fens 12,256  19 

Charlesbank 4,800  35 

Arnold  Arboretom 3,661  64 

Marine  Park 3,660  74 

Wood  Island  Park 3  30 

$41,110  44 

For  Park  Nnrsery 5,408  49 

For  Department  Expenses 6,140  33 

The  unexpended  balances  of  appropriations  December  28, 
1889,  are:  — 

Balance  of  the  3d  instalment  of  the  Loan  for  Park  Con- 

Btmction 940,898  83 

Balance  of    appropriation  for  maintenance,  including  rey- 

enne  appropriated  to  maintenance 6,957  04 

Balance  of  Department  appropriation 3,124  89 

Balance  of  Nursery  appropriation 1,648  99 

These  balances  of  the  general  appropriations  the  Board  thinks 
are  sufficient  to  continue  the  work  of  the  Department  to  the 
end  of  the  fiscal  year,  April  30,  1890,  without  further  aid. 

To  carry  on  the  work  of  Park  oonstruction  the  yearly  instal- 


ment    of    the  loan  for   1890  will  have  to  be  drawn  upon  in 

The  Board  would  recommend  that  the  City  Council  be  urged 
to  pass  the  order  for  a  loan  of  $600,000,  outside  the  Debt 
limit,  as  authorized  by  the  Legislature  in  1887,  for  the  pur- 
chase of  additional  land  required  tor  parkways  connecting 
Back-Bay  Fens,  Franklin  and  Marine  Parks,  especially  in 
view  of  the  fact  that  each  year's  delay  enhances  the  price  of 
the  lands  to  be  acquired,  and  so  increases  the  cost;  and  of  the 
fact  that  the  extension  of  the  Back-Bay  Fens  as  planned  can- 
not proceed  unless  additional  land  is  first  purchased. 

The  Board  would  also  suggest  that  an  early  construction  of 
the  bridge  required  at  the  new  outlet  of  Stony  Brook,  by  the 
Sewer  Department,  will  enable  the  Board  to  finish  its  work  in 
the  vicinity  now  suspended ;  and  that  the  placing  of  edgestones 
around  the  areas  reserved  for  planting  on  Commonwealth  ave- 
nue, by  the  Paving  Department,  must  precede  the  work  of  this 
Department  in  planting  the  areas  which  are  now  in  its  charge. 

The  number  of  persons  now  employed  in  the  Depart- 
ment, including  all  heads  and  Commissioners,  is  535. 

Respectfully  submitted,  for  the  Board, 




Board  of  Police,  7  Pemberton  Square, 

December  27,  1889. 
HoK.  Thomas  N.  Hart,  Mayor. 

Sir  :  —  The  number  of  persons  arrested  during  the  year  ending 
November  80,  to  which  date  the  statistics  of  the  Police  Depart- 


ment  are  made  Dp,  was  40,066,  an  iDcrease  of  4,057  over  the  pre- 
ceding year.  Of  this  nnmber,  31  per  cent,  were  non-residents. 
The  number  of  n^ales  arrested  was  34,283  ;  of  females,  5,783. 

The  value  of  property  reported  stolen  was  $72,822.64,  being 
$6,890.73  less  than  in  1888,  and  the  amount  recovered  by  th& 
police,  that  was  stolen  in  and  out  of  the  city,  was  $122,3301.58,. 
being  $37,973.82  more  than  in  1888. 

In  the  license  year,  beginning  May  1,  there  were  780  pllaces 
licensed,  not  including  druggists'  and  club  licenses.  This  is 
1,010  less  than  in  1888. 

There  were  144  officers  appointed  on  the  force,  including  59 
reserve  men ;  18  were  dischaiged ;  5  resigned ;  6  retired  on 
pension ;  and  9  died. 

The  work  of  introducing  the  police  signal-system  was  com- 
pleted. The  entire  City  is  now  equipped.  Wagon-houses  are 
now  being  built  in  Divisions  7  and  11,  but  as  yet  no  provision 
has  been  made  for  the  accommodation  of  patrol-wagons  ia 
Divisions  12,  13,  and  16. 

The  expenses  of  the  Department  for  the  calendar  year,  includ- 
ing the  draft  for  January  1,  1890,  were  $1,151,139.65.  The 
balance  of  appropriation  unexpended  is  $321,162.29.  This  will 
not  be  sufficient  to  meet  the  expenses  for  the  remainder  of  the 
financial  year,  and  the  Board  will  require  the  full  amount  called 
for  by  the  requisition  for  the  present  year. 

The  number  of  persons  employed  in  the  Department  is  906. 

Respectfully  submitted, 

A.   T.   WHITING, 





Office  of  the  Overseers  of  the  Poor, 

December  27,  1889. 
Hon.  Thomas  N.  Hart,  Mayor, 

Sir  :  —  In   reply  to  Circular  No.  35  the  Board  of  Overseers 
of  the   Poor  reports  as  follows :  — 
Nnmber  of  families   aided  — 


.     1,723 

July    . 


February     . 

.     1,743 




.     1,618 

September  . 


April  . 

.     1,083 



May    . 


November  . 

.     1,018 

June   . 

.     1,017 

December  . 

.     1,369 


A   _                 ^ •  ^\.» 

^j_^         ••  «    J 

A%                                                                           M 

In  addition  to  furnishing  out-door  relief  to  the  poor  at 
their  homes,  and  burial  of  the  dead,  the  Board  has  charge 
of  the  Charit}'  Building,  the  Temporary  Home  for  women 
and    children,  and    the  Lodge   for  Wa3'farers   for   men. 

The  Charity  Building  is  occupied  by  the  Overseers  of  the 
Poor,  the  State  Aid  Paymaster,  the  City  Physician,  and  vari- 
ous private  charitable  organizations,  it  having  been  built  to 
bring  together  the  most  important  charitable  agencies,  and 
thus   enable   them  to   work  together  for  the  common  good. 

At  the  Temporary  Home  3,722  women  and  children  have 
lodged,   and   15,515   meals   have  been   furnished   to  others. 

The  Lodge  for  Wayfarers  has  lodged  30,704  men,  and 
furnished  73,140  meals.  The  beneficiaries  have  worked  for 
the  relief  furnished.  Over  1,800  cords  of  wood  have  been 
prepared   and   sold  during  the  year. 

The    Board    has   a  grocery    department  connected  with  the 


Charity  Bailding,   from   which    most  of    the    supplies    for  the 
poor  are  delivered. 

Medical  attendance  and  medicine  are  famished  in  the  out- 
lying districts  of  the  city  not  covered  by  the  Boston  Dis- 

The  expenses  of  the  Department  for  the  year  1889  amount 
to  $109,410.83. 

The  unexpended  appropriation  is  945,812.21.  The  Board 
believes  this  amount  to  be  sufficient  for  the  calls  to  be  made 
upon  it  for  the  balance  of  tbe  fiscal  year. 

The  Board  consists  of  12  members  who  serve  without  pay. 
It  employs  a  Secretary,  Treasurer,  4  Clerks,  7  Visitors,  2 
Agents,  5  Physicians,  2  Storekeepers,  Eagineer,  and  Janitor. 
At  the  Temporary  Home,  a  Matron,  Assistant  Matron,  Jani- 
tor, and  Cook  are  employed. 

At  the  Lodge  for  Wayfarers,  a  Superintendent,  Cashier, 
Steward,  and  such  temporary  employees  as  may  be  needed 
from   time  to   time,  averaging   19. 

The  Trust  Funds  in  charge  of  the  Board  are  carefully 
invested,  and  the  income  expended  in  accordance  with  the 
directions  of  the  donors. 

In  behalf  of  the  Board  of  Overseers  of  the  Poor, 




Office  of  the  Superintendent  of  Printing, 

CriT  Hall,  December  26,  1889. 
Hon.  Thomas  N.  Hart,  Mayor, 

Sir:  —  The  actual  work  done  by  this  Department  in  the 
calendar  year  1889  consisted  of  the  printing  of  various  blanks 


and  books  in  use  in  the  different  Depailments,  and  the  regu- 
lar docaments  for  the  use  of  the  City  Coancil;   and  the  pur- 
chase of  stock  consumed  in  the  production  of  the  same. 
In  addition,  the  following  volumes  and  maps  were  issued :  — 

1,500  copies  Crispus  Attucks  Memorial, 

5,720      «'       Sheridan  Memorial, 

1,500      ''      Old  State  House  Memorial, 

2,500      ''      Bunker  Hill  Tablets  Memorial, 

1,000      *'      Statutes  Affecting  City  of  Boston, 

1,500       '^      Digest  of  Building  Laws, 

19  volumes  Record  Commissioners'  Reports  (500  copies  each), 

2  editions  of  Colonial  Laws, 

1 ,000  Maps  of  Town  of  Dorchester, 

500  Large  Maps  of  Boston,  and 

2,000  Ward  Precinct  Map  Books. 

The  actual  expenses  of  the  Department  for  the  same  period 
(excluding  draft  of  January  1,  1889,  and  including  draft  of 
January  1,  1890)  were  $64,805.19. 

The  unexpended  balance  for  the  fiscal  year  ending  April  80, 

1890,  of  the  Printing  Appropriation  proper,  is  .        •        .  $6,883  09 

The  estimated  income  for  the  balance  of  year  is    .        •        .  8,000  00 

Becord  Commissioners*  item,  unexpended  balance,  is       .        .  5,176  16 

Total 1^15,059  25 

It  is  expected  that  the  foregoing  sum  will  be  barely  enough 
to  carry  the  work  of  the  Department  through  to  the  end  of 
the  year;  but  as  the  Superintendent  has  no  control  over  the 
expenditure  of  the  appropriation,  and  merely  conforms  to  all 
legal  orders  of  the  City  Council  in  expending  it,  the  City 
Council  will  have  to  provide  for  any  deficiency  which  may 


The  Superintendent  believes  that  greater  efficiency  of  the 
Department  would  be  secured  if  the  employment  of  an  ad- 
ditional clerk  were  permitted,  and  the  appropriation  for  Print- 
ing and  Stationery  of  the  several  Departments,  not  specially 
exempt  by  law,  consolidated  in  the  Annual  Estimates  under  the 
general  heading  of  Printing  and  Stationery;  the  control  of  the 
expenditure  of  the  whole  to  be  given  to  the  Superintendent  of 
the  Printing  Department.  By  this  means  better  terms  for  the 
purchase'  of  Stationery  supplies  might  be  made,  and  a  more 
satisfactory  supervision  obtained. 

The  total  ntimber  of  persons  employed  in  the  Department  is 
three,  as  follows:  The  Superintendent,  a  clerk,  and  the  in- 
dexer  of  the  Minutes  of  the  City  Council. 




Officb  or  Ikspectob,  December  26,  1889. 
Hon.  Thomas  N.  ELlbt,  Mayor  of  Boston. 

Sib  :  —  In   response  to  Circular  35  I  report  the  amount  and 
the    kind   of   articles  of  food   that   have  been  condemned  and 
destroyed  by  this  Department  during  the  past  year. 
Whole  number  of  seizures,  982. 

3,379  pounds  of  Veal.     (Immature.) 

870  "         Veal.     (Tainted.) 

9,052  "  Poultry. 

163  "  Pork. 

1,854  "         Fish. 


86,740  pounds  of  Dates. 
624  "         Mutton. 

1,158  barrels  of  Potatoes. 












Beans.     (String,  Wax,  etc.) 







































of    Beans.     (String,  Wax,  etc.) 









Summer  Squash. 















of  Strawberries- 



Berries.     (Blue  and  Black.) 



of  Oysters. 

2,585  dozen 



59  baskets  of  Peas. 
120  jars  of  Lobster. 
120  cans  of  Com. 
24        **        Tomatoes. 
72        '*        Sardines. 
16        *'        Grapes. 
48  Carlew. 
The   actual  expense  of  the  Department  for   the  period   men- 
tioned   has    been    two    thousand    two    hundred    -^jj     dollars 
(82,200.30).       Of  the  sum   appropriated  for  the  Department, 
there  remain  unexpended  eight  hundred  fifty-nine  -^fP^  dollars 
($859.76),  which  I  believe  is  sufficient  for  the  needs  of  the 
Department  for  the  remainder  of  the  fiscal  year. 

Much  difficulty  has  been  experienced  in  carrying  out  the  pro- 
visions of  Section  2  of  Chapter  58,  Public  Statutes,  because  of 
the  doubtful  meaning  of  said  section,  and  I  would  suggest  that 
it  be  so  amended  as  to  place  the  expense  of  removing  articles 
seized  as  unfit  for  food  under  this  section  upon  the  owner  or 
person  in  whose  custody  they  may  be  found  at  the  time  of 
In  this  Department  there  is  but  one  person  employed. 

Respectfully  submitted, 

Iw^pector  of  Provisiona. 


Crrr  Hall,  December  27,  1889. 
Hon.  Thomas  N.  Hart,  Mayor. 

Sib:  —  The  Record  Commissioners  have  to  report  that  their 
expenses  for  the  year  1889  amount  to  84,862^^0^,   leaving  an 


anexpended  balance  of   $1,852.16,  which  is    sufficient   for  the 
remainder  of  the  fiscal  year. 

The  Department  consists  of  two  Commissioners  and  four 

The  work  done  has  been  the  copying  of  church  records 
and  the  preparation  for  the  press  of  the  Town  records.  The 
twentieth  volume  of  their  reports  has  been  completed,  and 
two  volumes  (viz.,  Dorchester  Births,  Marriages,  and  Deaths, 
and  the  Boston  Tax  List  of  1798)  are  now  in  press.  A 
special  volume  in  regard  to  the  Bunker  Hill  Tablets  was  also 
prepared  and  printed  by  the  order  of  the  City  Council. 

The  public  interest  in  and  demand  for  the  volumes  of 
reports  continues  unabated. 

Respectfully    submitted, 





Office  of  the  Citt  Registrar,  December  26,  1889. 

To  the  Mayor. 

Sir:  —  I  beg  leave  to  state  that  the  entire  expenses  of  this 
Department  are  for  salaries,  determined  by  the  City  ordinance, 
for  record  books  and  stationery,  and  for  the  annual  collection 
of  births,  made  in  pursuance  of  State  laws.  The  appropriation 
granted  for  these  purposes  during  the  present  year  by  the 
City  Council  was  $14,160,  of  which  there  remain  unexpended 
$7,004.50.  This  amount  will  be  sufficient  to  meet  the  wants  of 
this  Department  until  the  end  of  the  present  fiscal  year. 


The  number  of  persons  employed  in  this  office  is  eight — three 
men  and  five  female  clerks. 

Yoor  obedient  servant, 


City  Registrar. 

[From  the  Superintendent] 

The  School  Committee  has  given  much  attention  to  needed 
improvements  in  the  ventilation  of  school-houses.  Although 
much  remains  to  be  done,  it  is  believed  that  all  the  worst  cases 
of  defective  ventilation  have  been  cured. 

A  further  provision  for  the  safety  of  the  children  in  school- 
houses  was  made  by  placing  the  janitors  under  the  rules  of  the 
civil  service. 

The  tenure  of  office  by  which  most  of  the  teachers  in  the  City 
now  hold  their  places,  has  been  changed  from  one  that  terminated 
annually  to  one  that  continues  during  the  pleasure  of  the  School 
Committee.  This  measure  undoubtedly  places  the  teachers  in  a 
more  agreeable  and  dignified  position  than  they  held  under  the  old 

Manual  training  has  made  satisfactory  progress  in  the  elemen- 
tary grades  during  the  year;  but  a  most  important  step  yet 
remains  to  be  taken  —  the  establishment  of  a  Mechanic  Arts  High 
School.  An  elaborate  plan  for  such  a  school  has  been  prepared, 
and  the  specifications  for  the  erection  and  furnishing  of  a  proper 
building  are  ready.  The  City  Government  will  be  asked  to  make 
the  necessary  appropriations  for  the  land,  the  building,  and  the 
running  expenses. 


[From  the  Auditing  Clerk.] 

The  expenses  of  the  School  Committee  from  January  1, 
1889,  to  January  1,  1890,  amount  to  $1,643,976.61. 

The  unexpended  balance  remaining  January  1,  1890,  is 

It  is  expected  that  the  unexpended  balance  will  prove  suf- 
ficient to  carry  on  the  work  of  this  Department  for  the 
balance  of  the  financial  year  without  further  aid. 

The  number  of  persons  employed  to  carry  on  the  work, 
instructors  (day  and  evening),  janitors,  ofiicers,  and  other  em- 
ployees, December  1,  1889,  was  1,783.  This  number  does 
not  include  the  members  of  the  School  Committee,  twenty-four 
in  number,  who  serve  without  compensation. 


Office  of  the  Superintendent, 

December   28,    1889. 
To  His  Honor  the  Mayor. 

Sir:  —  Apart  from  the  work  of  maintaining  the  old  sewers, 
which,  sometimes,  necessitated  the  making  of  extensive  repairs, 
there  have  been  built  by  this  Department,  during  the  calen- 
dar year  1889,  about  5|  miles  of  new  sewers  and  183  new 
catch  basins;  and  about  825  old  catch  basins  have  been 
repaured.  About  2  miles  of  sewers  have  been  built  by  private 
parties  at  their  own  expense  and  subsequently  were  released 
to  the  City. 

The  construction  of  the  Stony  Brook  Improvement  has  been 

The   works  at  the    Main  Drainage  pumping  station  and  at 


Moon  Island  are  in  good  order.  The  cost  of  repairs  on  the 
works  will  increase  from  year  to  year,  owing  to  the  wearing 
out  and  necessary  renewal  of  important  parts  of  the  system. 

The  attention  of  the  City  Council  has  already  been  called 
to  the  necessity  of  proiriding  means  for  a  permanent  conduit 
from  Squantum  to  Moon  Island;  also,  for  pumping  out  the 
tunnel;  and  I  would  again  call  attention  to  the  danger  of 

During  the  eleven  months  ending  November  30,  1889,  the 
average  amount  of  sewage  pumped  daily  has  been  51,256,898 
gallons  —  showing  an  increase  over  tbat  pumped  last  year  of 
616,866  gallons  daily.  The  largest  number  of  gallons  pumped 
on  any  one  day  was  on  January  7,  1889  —  138,615,771  gal- 
lons; and  the  smallest,  on  November  17,  1889  —  32,217,372 

Sewer  assessments  to  the  amount  of  $69,249.39  have  been 
levied  under  the  old  law,  and  to  the  amount  of  $32,976.65 
under  the  new  law  relating  to  sewer    assessments. 

This  new  law,  or  rather  Special  Act,  relating  to  sewer 
assessments  in  the  City  of  Boston,  which  was  approved  on 
June  7,  1889,  has  entailed  a  large  amount  of  extra  work 
on  the  Department,  necessitating  the  opening  of  a  new  set  of 
accounts  and  requiring  that  each  and  every  individual  assessed 
shall  be  notified  of  the  amount  of  his  assessment  and  the 
requirements  of  the  law  relating  thereto. 

Under  this  law,  the  amount  to  be  collected  as  an  assess- 
ment on  account  of  the  construction  of  a  sewer  depends 
upon  the  cost  of  all  the  sewers  built  in  the  City  during  the 
five  years  immediately  preceding,  and  bears  no  relation  to 
the  cost  of  that  particular  sewer.  This  fact  has  caused 
widespread    dissatisfaction    among    property  owners,   as,   in  a 


majoril}''  of  cases,  tbe  amoant  assessed  is  largely  in  excess  of 
the  actaal  cost  of  the  sewer  hi  questioa.  The  provision  of 
the  law,  requiring  that  interest  shall  be  charged  from  the 
date  of  completion  of  the  sewer,  thus  commencing  before  the 
parties  interested  have  been  notified  of  the  fact  that  an  as- 
sessment has  been  levied  against  them,  has  also  eaused  a  great 
deal  of  complaint  which  appears  to  be  well  founded,  and 
there  is  a  general  demand  for  a  repeal  or  modification  of  the 

The  amounts    expended    under  the    different    appropriations 
during  the  year  are  as>  follows:  — 

Sewer  Department  (which  includes  the  cost  of  nadntalning 
the  Main  Drainage  Works,  the  care  of  Stony  Brook  and 

the  Cleaning  of  Catch  Basin?) $372,816  85 

Stony  Brook  ImproYement 105,671  51 

Sewer,  Hudson  Street 9,462  92 

Sewers,  South  Core  District  .......  7,312  76 

Sewer,  Meridian  Street    •        •        »        .        ^        .        .        .  6,688  10 

Sewer,  Magazine  Street  ........  3,500  00 

Sewer,  Mount  Vernon  Street 1,000  00 

Sewers,  Ashmont 54  85 

Total $506,506  99 

Of  Special  Loans,  I  have  unexpended  balances  amounting^ 
in  the  aggregate,  to  $57,969.56. 

The  unexpended  balance  of  my  Sewer  Appropriation, 
$66,420.26,  is  suflQcient  to  carry  the  Department  successfully 
to  the  end  of  the  fiscal  3*ear. 

There   are  employed  in  this  Department  to-day  865   men. 

Attention  is  respectfully  called  to  the  need  of  much  latter 
appropriations  for  building  sewers.  Many  of  the  sewers  are 
leaky   and    in  bad    condition.      They  should,   at  once,  be  re- 


placed  by  water-tight  sewers,  not  only  as  a  sanitary  measure 
but  to  afford  relief  to  the  intercepting  sewers;  for,  until  all 
sewers  and  drains  connecting  with  the  main  drainage  system 
are  made  water-tight,  the  full  benefit  of  that  system  cannot 

It  is,  also,  desirable,  and  will  soon  become  a  necessitj^  to 
abandon  the  combined  system  of  drainage  in  the  outlying  popu- 
lous districts,  and  to  divert  the  surface  water,  or  portions  of  it, 
into  the  natural  water  courses,  or  into  tide  water,  thereby 
affording  relief  to  the  abutters  now  frequently  flooded  in  times 
of  storm.  This  will  avoid  the  necessity  of  pumping  surface 
water  at  the  Pumping  Station.  To  accomplish  this  purpose, 
all  natural  water  courses   should  be  presei-ved. 

The  Act  relating  to  Sewer  Assessments  is  believed  to  be 
irksome  and  unjust,  imposing  a  larger  proportion  of  the 
expense  upon  the  abutting  estates  than  they  should  be  called 
upon  to  pay,  and  believed  to  be  largely  in  excess  of  the  rate 
designed  by  its   projectors. 

As  sewers  are  necessary  in  all  populous  districts,  for  the 
health  and  prosperity  of  the  entire  community,  it  would  appear 
worthy  of  consideration,  whether  the  system  of  direct  assess- 
ment for  sewers  should  not  be  abandoned  and  the  entire  cost 
paid  by  current  taxes ;  or,  else,  the  rate  made  uniform  — 
say  —  one  cent   ($0.01)  per  square  foot  of  land  drained. 

Respectfully  submitted, 


Superintendent  of  Seivera. 




Office  of  Superintendbnt  of  Streets, 

City  Hall,  December  28,  1889. 
Hon.  Thomas  N.  Hart,  Mayor. 
Sir  :  —  I  have  the  honor  to  report : 

Ist.   '^The  actual  work  done  in  the  calendar  year  1889"  may 
be  briefly  sammarized  as  follows:  — 

Granite  blocks  laid 
New  edgestone  set 


29,667  sq.  yds. 

82,773  iin.  feet. 

51,390     "     " 

43,911  sq.  yds. 
1,547   "      " 

11,590  Iin.  feet. 

19,428  sq.  yds. 

1,369    "      " 

1,188    **      " 

$18,502  89 

$23,464  15 

$157,806  42 

Edgestone  reset   . 
Brick  sidewalk  laid 
Concrete  sidewalk  laid 
Flagging  (cross-walks)  laid 
Round  stone  gutters 
Asphalt  pavement,  new 
Asphalt  pavement,  resurfaced 
Grade  damages,  executions  of  Court 
"Watering  streets  by  contract 
Expended  for  general  repairs 

2d.  '^  The  actual  expenses  of  the  Department  for  the  same 
period,  excluding  the  draft  of  January  1,  1889,  but  including 
that  of  January,  1890":  — 

Balance  on  hand  January  1,  1889 
Loan  January  2,  1889 
Transferred  from  Commonwealth  ave- 
nue    •        ••••• 

Transferred  from  Boylston  street 
Loan  February  16,  1889     . 
Appropriation  for  1889 
Loan  December  24,  1889   . 

$8,265  11 
66,300  00 

11,000  00 

5,000  00 

57,889  30 

648,229  00 

50,000  00 

$846,683  41 



EapendUures :  — 
Labor         •        •        •        •        • 
Street  material  .        •         .        . 
Teaming,  hired  .... 
Teaming  hired  for  watering  streets 
Watering  streets  by  contract 


Balance  on  hand  January  1,  1890 

Special  appropriations:  — 

On  hand  January  1,  1889  . 

Appropriation  January  2,  1889  . 

May  1,  1889 
September  25,  1889 

Transferred  September  19,  1889 

Appropriated  December  23,  1889 



Expended  to  date 

Balance  on  hand 

$323,048  81 
147,169  44 
70,689  25 
20,113  00 
23,464  15 
176,064  97 
86,134  29 

$846,683  41 

$17,960  15 
117,000  00 
161,725  00 
207,000  00 
2,000  00 
14,000  00 

$519,685  15 
298,922  96 

$220,762  19  Jan.  1,  1890 

3d.  ''The  unexpended  appropriation  and  my  ability  to  con- 
tifiue  the  work  of  the  Department  to  the  end  of  the  fiscal 
year,  April  30,  1890,  with  or  without  further  aid" :  — 

Balance  of  regular  appropriation  January  1,  1890    .     $86,134  29 
"     "   Special  **  «*  "  .     220,762  19 

Total $306,896  48 

The  Department  is  at  present  on  full  time,  and  to  continue 
it  so  until  April  30,  1890,  will  require  for  — 


Labor $160,000  00 

Office   salaries 5,005  00 

Hay,  grain,  etc 2,500  00 

Street  material 10,000  00 

Water 6,237  00 

Incidentals,  grade  damages,  etc 10,000  00 

Total $198,742  00 

My  ability  to  continue  the  work  of  the  Department  until  the 
end  of  the  fiscal  year  without  fbrther  aid  will  depend  entirely 
upon  the  character  of  the  winter  and  the  amount  of  snow  to 
be  handled.  I  find  by  the  Superintendent's  report  for  the  year 
1887  that  the  amount  expended  for  snow  was  $116,000,  while 
for  the  same  purpose  in  1888  only  $6,500  was  required.  Should 
the  present  winter  be  as  favorable  as  the  last  the  remainder 
of  the  general  and  special  appropriations  will  be  sufficient  for 
all  purposes. 

4th.  ^^  Any  recommendations  for  the  greater  efficiency  of  this 
Department,  especially  such  as  may  require  action  on  the  part 
of  the  Mayor,  the  City  Council,  or  the  Commonwealth."  I 
desire  again  to  call  attention  to  the  constantly  increasing 
street  mileage  of  the  City,  and  the  necessity  for  sufficient  appro- 
priations to  do  the  work  of  the  Department.  The  annual 
appropriations  for  some  3'ears  have  been  barely  sufficient  to 
meet  the  requirements  of  constant  repairs,  cleaning,  purchase 
of  new  material,  steam  road-rollers,  stone-crushers,  engines, 
and  the  various  expenses  incidental  to  the  Department.  Tet 
I  am  expected  with  this  appropriation  to  attend  to  the  hundreds 
of  orders  passed  by  the  Board  of  Aldermen  for  new  work  on 
edgestones,  brick  sidewalks,  and  the  construction  of  new  streets. 



This  is  an  absolute  impossibility,  and  much  of  this  work  remains 
iindone,  to  the  great  annoyance  of  the  petitioners. 

By  reference  to  the  statement  of  actual  work  done  during 
the  year  it  will  be  seen  tliat  six  miles  of  new  edgestone  have 
been  laid.  One-half  the  expense  of  this  work  is  assessed  upon 
the  abutters,  and  returns  to  the  sinking-fund. 

It  has  been  suggested  that  measures  be  taken  to  secure  an 
appropriation  of  $500,000  annually  for  new  work;  this,  if 
applied  to  new  edgestone  and  new  paving,  as  well  as  to  the 
construction  of  new  streets,  would  go  far  towards  enabling  me 
to  bring  the  Department  to  the  point  of  efficiency  at  which  it 
should  be  maintained. 

The  matter  of  street  openings  continues  to  be  a  constant 
source  of  annoyance  to  the  Department  and  to  the  citizens  at 
large.  So  long  as  the  Board  of  Aldermen  grants  to  various 
corporations  the  right  to  occupy  the  streets,  the  Superintendent 
has  no  option  but  to  grant  the  permits  to  open.  Where  for- 
merly there  were  only  the  sewer,  water,  and  gas  pipes  to 
contend  with,  we  now  have  in  addition  the  telephone,  electric 
lighting,  heating,  and  freezing  pipes,  with  their  numberless  con- 
nections with  the  buildings. 

During  the  year  9,750  permits,  varying  in  length  from  10 
feet  to  500  feet,  have  been  granted,  and  every  precaution  pos- 
sible has  been  taken  to  see  that  the  disturbed  pavement  has 
been  restored  to  its  former  condition.  We  have  a  good  sys- 
tem of  inspection,  and  defects  are  also  reported  by  the  police. 
Settlement  invariably  takes  place  after  the  0[)eniug  has  been 
filled,  and  the  companies  are  frequently  required  to  pave  a 
second  and  third  time.  With  these  requests  they  liave  always 
shown  a  readiness  to  comply  whenever  the  responsibility  has 
been  well  established.     I  do  not  think  it  advisable,  so  long  as 


this  merciless  CDtting-up  ooniioiies,  to  lay  any  expensive  pave- 
ment upon  our  streets.  A  granite  pavement  on  a  hydraulic 
cement  base,  at  $4  a  square  yard,  or  any  form  of  asphalt 
pavement  seems  to  me  to  be  unwise  until  some  greater  restric- 
tions are  put  upon  the  issuing  of  permits,  or  a  subway  or  some 
comprehensive  system  is  provided  by  which  the  underground 
service  can  be  cared  for  without  disturbing  the  street  surfaces. 

The  first  cost  ot  such  a  way  would  doubtless  be  something 
appalling,  yet  it  is  a  question  whether  the  amount  now  actually 
spent  in  carrying  on  the  present  cumbersome  system  would  not 
amply  provide  for  the  interest  on  the  larger  expenditures. 

5th.  The  total  number  of  persons  employed  in  this  Depart- 
ment at  the  present  time  is  seven  hundred  and  sixty-three. 

Very  respectfully, 


Superintendent  of  Stress. 


Cmr  Survetor's  Office^ 
CiTT  Hall,  December  26,  1889. 
Hon.  Thomas  N.  Hart,  Mayor. 

Sir: — The  work  of  the  Department  has  been  of  the  same 
general  character  as  that  of  previous  years ;  but  as  the  City  is 
growing  from  year  to  year,  there  is  a  gradual  increase  in  the 
.amount  of  work  performed. 

Plans  and  profiles  of  a  large  number  of  streets  in  the  outlying 
districts  have  been  made,  and  releases  prepared  for  the  abutters 
to  sign,  preparatory  to  the  laying  out  of  these  streets  by  the 
Street  Commissioners. 


More  buildings  having  been  erected  in  Boston  during  the  past 
year  than  in  1888,  and  more  work  in  giving  lines  and  grades  of 
streets  for  building  purposes  has  been  required  of  this  Depart- 
ment than  during  the  previous  year. 

Flans  and  profiles  for  the  relocation  of  Mt.  Vernon  and  Temple 
streets,  and  the  lowering  of  the  grades  of  those  streets  in  the 
vicinity  of  the  State-House  extension,  have  recently  been  com- 

A  large  plan  of  the  burnt  district,  by  the  fire  of  Thanksgiving 
day,  has  been  compiled,  showing  the  estates  within  the  limits 
of  the  district  burnt  over,  and  also  showing  other  estates  in  the 
vicinity.  Plans  have  also  been  made,  for  the  Street  Commis- 
sioners, showing  the  proposed  widening  of  Chauncy  street, 
between  Bedford  street  and  Rowe  place,  the  proposed  widening 
of  Bedford  street  between  Chauncy  and  Kingston  streets,  and  the 
proposed  widening  of  Kingston  street  at  the  north-easterly  comer 
of  Bedford  street — all  within  the  limits  of  the  burnt  district. 

Plans  of  the  new  precincts,  286  in  number,  have  been  pre- 

.  pared  for  the  use  of  the  Registrars  of  Voters,  who  have  caused 

them  to  be  heliotyped.     Another  set  of  precinct  plans  has  been 

prepared  and  heliotyped,  and  bound  up  in  book-form,  showing 

wards  and  precincts,  for  the  use  of  the  City  Council. 

The  expenses  of  the  Department  from  January  1,  1889,  to 
January  1,  1890,  amount  to  $34,825.71. 

The  amount  of  the  appropriation  unexpended  is  $8,879.97, 
which  will  probably  be  sufficient  for  the  remainder  of  the  finan- 
cial year. 

The  total  number  of  persons  employed  at  the  present  time 

is  35. 

Verj'  respectfully, 


City  Surveyor. 




CiTT  Treasurer's  Office,  January  1,  1890. 
Hon.  Thomas  N.  Hart,  Mayor. 

Sir  :  —  The  undersigned  herewith  presents  a  statement,  in  com- 
pliance with  your  request  of  December  28,  1889,  of  the  receipts 
and  payments  of  the  City  of  Boston  and  County  of  Suffolk  for 
the  year  1889,  beginning  January  1,  1889,  ending  December  31 , 
1889,  showing  the  balance  of  money  remaining  in  the  Treasury 
December  31,  1889,  and  where  deposited,  and  of  the  other 
matters  referred  to  in  your  conmnunication. 

Yours  most  respectfully, 


City  Treasurer. 


For  the  Caiendar  Tear  1889,  beginning  January  1,  1889,  ending 

December  31,  1889  :  — 

Balance  on  hand  January  1, 1889 

$8,264  «»  60 


From  City  Collector:  . 

On  CitT  Account 

$16,408,951  68 

On  County  Account    ....... 

Temporary  Loans  :^ 

AnUoIpation  of  Tazet,  1889, 2H 

$2,000,000  00 

CltyLoana:  — 

General  Loan  of  January  8, 1889, 4)( .  •  . 

769,000  00 

General  Loan  of  February  16, 1889, 4^ .  . 

416,000  00 

New  Library  Building,  Dartmouth  it.,  ZH 

600,000  00 

'  Improredf  Seweraire.  3M 

600,000  00 

Public  Park  Construction,  4)( 

600,000  00 

ICiMellaneoua  purposes,  S^jt 

600,000  00 

6,186,000  00 

Carried /orwardt 

$90,898,616  02 

$8,204,006  69 



Brought  forward, 
finiVolk  Oonn^  Loads  : — 

Oenenl  Loan  of  February  16, 1880, 4$ .  • 
CottUfeOite  Water  Loam : — 

Sztenaion  of  Maina,  etc,  0 

Kxtenalon  of  ICaina,  eie..  mi 

Additional  Supply  of  Water,  S^ 

Shopa,  Allwny  atreet,  O.  W.  Works,  8|^   . 

Board  of  Oommlsdonera  of  Sinking  Funds  >- 

For  payment  of  debt  .  .  • 

For  eoflt  of  redemption  of  sterling  debt  •  . 

Premium  on  CSoddtnate  Water  Loans  negoti- 

$900,000  00 

180,000  00 

146,000  00 

60,000  00 

Interest  on  Back  Deposits 

Fay  Roll  TaLinn,  from  paymasters*  settle- 
mente  w?lh  Ouhier,  parties  unpaid  •  .  . 

Premium  ol  Oity  Loans  negotiated 

$1,167,828  90 
1,648  20 

Tax  titles,  received  from  owners  to  seeure 
estatea  sold  for  taxes 

Interest  on  OoeUtuate  Water  Loans  negoti- 


On  aocoant  of  the  City  of  Boston :  -~ 

On  Mayor's  Drafto :  Oeneral  Drafts .... 

PayKollDrafte  .  .  . 
OarrUd  foraardt 

•$6,607,666  84 
t6,600,067  66 

$18,016,028  40 

$90,808,6U  02 

64,000  00 

$8,264,606  60 

686,000  00 

1,160,871  48 

84,016  60 
60,176  00 

22,060  02 
121,247  40 

900  44 

44  44 

22,004,681  88 
$36,160,286  80 

•Amount  of  General  Drafte  through  City  Auditor's 

Office  from  January  1, 1880 $6,610,674  78 

Add:  Amount  of  General  Drafte  outstand- 
ing December  81, 1888  • 

2,846  18 

Leas:  Amount  enjoined  and  restrained  from  pay- 
ment by  Supreme  Judicial  Court 

Amount  tranaforredto  **01d  Claims,"  April 
80, 1880 

Amount  not  paid  December  81, 1880 

$6,618,010  01 

$800  60 

1.117  10 
13,446  47 

6,464  07 
$6,607,666  84 

X  Amount  of  Pay  Roll  Drafte  through  City  Auditor's  Office  from 

January  1, 1880 $6,600,601  22 

Add :  Amount  of  Pay  Roll  Drafte  outstanding  Decem- 
ber 81, 1880 22,826  66 

Less :  Amount  not  paid  December  31, 1880 

$6,582,427  87 
23,870  81 

$6,600,067  66 



Bntmifht  forwairdt 

Special  Dr»fU    . 

Commonwealth  of  McuoaehutgUa:  — 

State  Tax  *<  1889" 

NaUonal  Bank  Tax  «*  1880*' 

National  Bank  Tax  "1888" 

Corporation  Tax  "1888" 

Armory  Loan  AaMflsment 

Liquor  Lioenw  Bevenae  **  1880  '* 
Liquor  Llcenae  BeTenne  **  1888 '*   .  • 

Board  of  OommUtiwMrt   of  Sinking 
litndt :  — 

Berenue,    payable  under  authority  of 
Ordinanoe  on  Finance 

Premium  on  Loans  negotiated 

Pay-BoH    Tailing!,  payments  by  Cashier 
to  parties  not  paid  by  paymasters  •  .  . 

•  •  •  • 

$18,016,828  40 
6,640,880  00 

PoUoe  Charitable  Fund 

City  Hospital  Trust  Funds 

City  Debt  due  prior  to  May  1, 1880    .  .  . 
Taxes,  eto.,  held  under  protest,  refunded 

Taxes,  etc.,  refunded 

Mount  Hope  Cemetery 

Cochituate  Water^Bates  refunded  .  .  .  . 
Public  Library  Trust  Funds 

Sewer  Assessmenta  held  under  protest, 
refunded    •• 

Evergreen  Cemetery  Trust  Fund    i 

Besidne  Tax  Sales,  eto 

Oatried  /ortoard, 

t$18,666,454  80 


040,400  20 

1,167  67 

4,862  80 

81,408  » 

221,668  76 

277  00 

$06,761  00 
140,660  80 

1,627,879  26 

236,420  80 

28,164  81 
12,600  00 
0,600  00 
6,000  00 
6,608  28 
8,606  01 
2,400  00 
1,000  40 
1,400  00 

386  40 
800  00 
219  86 

$80,498,368  80 

t  Includes,  City  Debt  paid $1,167,828  80 

Coat  of  Bedemption  of  Sterling  Debt 1,648  20 

Temporary  Loans 2,000,000  00 

t  Includes  Interest  paid  as  follows : — 

On  City  Debt $1,681,880  82 

On  Cochttuate  Water  Debt 764,728  27 

On  Mystic  Water  Debt 41,667  60 

$8460,Sn  40 

$2,318,871  W 



JBraught  forward, 
OM  ClAtcnfl.  MaTor*s  Dnftt  ....... 

$20,408,868  80 
142  08 
104  88 
10  46 

Mvitio  Water  Ratnt  rttfimded 


#20.408,025  80 

TmytDMiatB  <»  aeeovni  of  ib»  County  of  Suf- 

Allowed  by  Auditor  of  Cocmty  of  Suffolk, 

MaTor*!  Special  Drute  •  .  .  • 

#666,870  86 

602,614  68 

882  60 

66  00 

18  40 

CoQntT  4i>w  to  CroniplalnaBt 

Oounty  ftnee,  award  to  wife  for  neglect 
to  raoport  bv  hoeband    *•.««••• 

Judgment  for  eosU  of  suit  agatntt  rare- 
tiee  on  bail  bond  In  caee  Commonwealth 

fli«.  Tjiav  M.  O-nvA  luiil  Gtavrmt  RlnvAr   . 

Bounty  for  de«tnictlon  of  Seala  .  .  t  .  . 

1,280,050  Tt 

#21J6S,686  07 

Balanee.  JaBuarr  1. 1880 

#8»2OI,606  6O 

Becelpts  on  accoimt  of  the  City  of  Boeton, 

$22,686,067  86 
868,668  44 

on  aoconnt  of  the  Coonty  of  Suffolk, 

22,001,681  80 

#20,408,626  SO 
1,260,060  77 

Faymenta  on  aeconnt  of  the  City  of  BoatonJ 
on  aooount  of  the  (Joonty  of  Suffolk, 

#26,160,286  80 
21,768,686  07 

Balaaoe.  December  81. 1880 

#4,400,661  82 

*  Amount  of  Comity  RegistratioDe  tbrovgh 
County  Andltor's  offloe  from  January  1, 
1880 . 

:  Amonnta  transferred  to    "Old 
Claims,"  April  80, 1880      •  . 
Amomits  not  paid  December  81. 

Add :  Amounts  outstanding  Deoembor 

#066,687  20 
817  40 

#667,404  60 

#8  26 
616  60 


#666,870  86 

t  Inelades  Coonty  Debt  paid,  #17»000.00.      f  Inohtdes  Ifttereat  paid  <m  Coonty  Debt,  #88,407  J»0. 



Balance.  Deoember  81, 1889,  at  per  preceding  stotament,  de- 

ledT      • 

poilted  in  tile  following-named  1>anks :  — 

Atlantio  NaUonal  Bank 

Atlaa  Nattonal  Bank 

Blaokitone  Nationai  Bank 

Boston  National  Bank 

Broadway  National  Bank 

Banker  HIU  NaUonai  Bank 

Central  National  Bank 

Sverett  National  Bank 

Faneull  Nattonal  Bank 

Fint  Ward  National  Bank 

Foarth  National  Bank 

Freeman's  Nattonal  Bank 

Lincoln  National  Bank 

Mannfaetarera*  National  Bank    .  .  . 

Market  Nattonal  Bank 

ICaeiacbveette  Nattonal  Bank  .... 

Kayeilck  Nattonal  Bank 

ICechanAes' Nattonal  Bank 

KetropoUtan  Nattonal  Bank    .... 

Monument  National  Bank 

Motwt  Vernon  National  Bank .  .  •  . 
Nattonal  Bank  of  the  Oommonwealth 
Nattonal  Bank  of  North  Ameilca  .  . 

Nattonal  City  Bank 

Nattonal  Bzcliange  Bank 

Nattonal  Hide  and  Leather  Bank   .  . 

Nattonal  Boeklaad  Bank 

Nattonal  Becnrity  Bank 

Nattonal  Webeter  Bank 

North  Nattonal  Bank 

Old  Boston  Nattonal  Bank    ..... 

People's  Nattonal  Bank  ....... 

Shawmat  Nattonal  Bank 

CkurrUd /brward. 

$75,115  07 
75,188  78 
75,120  48 
75.144  85 

50.087  50 
76,147  04 
75,181  80 

50.005  80 

75.147  02 
60,100  02 
75,135  82 
75,181  50 

75.180  60 
75,143  84 

75.148  82 
75,110  04 

75.181  48 

50.006  00 

50.088  80 
50,008  73 
50,006  88 
75,181  52 
75,181  60 
75^35  02 
'75,181  51 

75,110  17 
75,148  14 
75,160  01 
75,148  84 
75,148  85 
75,148  84 
75.148  75 
75,118  01 

$2,804,100  86 



Brought  foru>ard. 
Third  National  Bank  . 
Tremont  Katfonal  Bank 

Globe  National  Bank 

Howard  National  Bank 

National  Bank  of  Redemption 

National  Bank  of  tile  Repnblio . 

National  Berere  Bank 

National  Beeority  Bank,  Fay*roll  Tailings  aeooant  . 

Gaah  depoalted  In  Bank* 

Gaah  and  caah  vonehera  In  ofice,  Inclading  paymente  made 
on  January,  1880,  Draft • 

$2,804,1«>  66 
76,148  86 
76,116  67 

$2,464^480  18 
899,632  45 
889,878  81 
851,002  04 
663,148  88 
462,619  76 
6,607  87 

$4,816,766  04 
83,886  78 

$4,400,651  -82 

Expenses  of  the  Dbpabtuent,  Etc. 

The  actual  expenses  of  the  Department  during  the  calendar 
year   1889  were  $37,030.75. 

The  unexpended  appropriation  for  the  present  financial 
year  1889-90  is,  $10,086.60,  which  will  be  sufficient  to  meet  the 
wants    of  the  Department  to  the  end  of  the  fiscal  year. 

The  total  number  of  persons  employed  in  this  Department, 
including  the  City  Treasurer,  is  fifteen. 



Board  or  Rbgistbabs  of  Voters,  12  Beacon  Street, 

December  27,  1889. 
HoK.  Thomas  N.  EUrt,  Mayor. 

Sir:  —  1.  We  have  the  honor  to  say  that  the  work  of  the  De- 
partment during  the  calendar  year  1889  has  been  the  prepara- 
tion of  the  Jury  List,  the  rearranging  and  reprinting  of  all 
names  on  the  voting-lists  in  conformity  with  the  new  precinct 
lines  as  established  by  the  order  of  March  20,  1889,  together 
with  the  preparation  and  publication  of  the  voting-lists  for  the 
annual  State  and  municipal  elections. 

The  provisions  of  the  new  Massachusetts  Ballot  law  have 
largely  increased  the  labor  and  expense  of  the  Department,  in- 
volving the  examination  of  nomination  papers  of  candidates  for 
State  and  municipal  offices,  in  which  12,500  names  were  actually 
verified,  out  of  more  than  20,000  names  submitted ;  and  the  at- 
tendance at  hearings  on  contested  nominations  before  the  Board 
of  Final  Appeal  of  which  this  Board  forms  a  part. 

2.  The  actual  expenses  of  the  Department  from  January  1 
to  December  81,  1889,  amount  to  $46,706.16. 

8.  The  unexpended  balance  of  our  appropriation  amounts  to 
$5,488.53,  and  it  will  require  the  further  sum  of  $8,000  to 
meet  the  expenses  of  the  Department  for  the  balance  of  the 
financial  year,  as  advised  in  our  communication  to  your  Honor 
dated  November  8,  1889. 

4.  We  may  ask  for  some  amendments  to  the  new  Ballot 
Law  with  a  view  to  perfecting  some  of  its  sections,  which  we  now 
find  quite  difficult  of  practical  operation. 

5.  The  total  number  of  persons  now  employed  in  the  De- 
partment is  nine. 


We  woald  respectfully  suggest  that  the  number  of  voting- 
precincts  be  reduced  from  two  hundred  and  eighty-six  to  two 
hundred.  This  calculation  is  based  upon  the  average  ratio  of 
increase  in  the  number  of  voters,  which,  in  the  near  Ibture,  will 
reach  80,000,  thus  giving  an  average  of  400  to  each  precinct. 
From  our  own  observations  and  the  testimony  of  others  who  have 
given  the  subject  considerable  thought,  wo  are  of  the  opinion 
that  four  hundred  or  even  five  hundred  persons  can  conveniently 
vote  under  the  new  system  within  the  time  allowed  by  law  be- 
tween the  opening  and  closing  of  the  polls  on  election  day.  If 
a  reduction  of  precincts  should  be  made  in  accordance  with  the 
above  suggestion,  it  would,  in  our  Judgment,  result  in  a  saving  to 
the  City  of  at  least  $65,000  between  now  and  1895,  at  which  time 
the  ward  lines  must  be  changed,  which  change  will  necessitate  the 
rearrangement  of  many  of  the  precincts,  but  will  not  necessarily 
add  to  the  number. 

The  Board  of  Registrars  of  Voters, 




Office  of  the  Boston  Water  Board. 

CiTT  Hall,  December  28,  1889. 
Hon.  Thomas  N.  Hart,  Mayor. 

Sm:  —  In  answer  to  your  Circular  of  December  23  the  Bos- 
ton Water  Board  has  the  honor  to  report  as  follows :  — 

In  the  Eastern  Division,  during  the  year  1889,  the  amount 
of  work  done  has  been  larger  than  usual.  The  distributing 
mains  have  been  extended  22.3  miles,  and  1.7  miles  of  the  old 


maiuB  have  been  relaid  with  pipes  of  larger  size.  The  total 
length  of  mains  now  connected  with  the  works  is  479  miles. 
2,054  services  have  been  connected  with  the  works,  a  number 
larger  than  daring  any  year  since  1872.  The  supply  for  fire 
service  has  been  improved  by  the  addition  of  168  hydrants, 
and  also  by  the  substitution  of  118  hydrants  of  improved  pat« 
tern  and  large  size  for  the  same  number  of  small  hydrants  of 
the  old  pattern.  456  new  meters  have  been  added  and  112 
discontinued,  making  a  net  increase  of  344.  Hie  pipe  line, 
laid  through  the  City  of  Qnincy  from  Neponset  to  Long  Island, 
for  the  supply  of  the  Public  Institutions  oo  the  island,  was 
completed  and  placed  in  service  during  the  latter  part  of  Au- 
gust of  the  current  year.  The  80-inch  and  16- inch  connecting 
mains  for  the  supply  of  Charlestown  from  the  Cochituate 
works  will  be  in  readiness  for  use  within  a  few  days,  and  a 
water  tank  for  the  use  of  the  supplementary  high  service  for 
East  Boston  has  been  erected  on  Breed's  Island. 

A  new  20-inch  main  for  the  improvement  of  the  high  service 
supply  in  the  City  prc^r  has  been  laid  from  the  reservoir  at 
Parker  Hill  to  Boston  Common,  a  distance  of  15,650  feet. 
This  work  is  complete  with  the  exception  of  the  connection  over 
the  Boston  &  Albany  Railroad  at  Huntington  avenue,  which 
will  be  made  within  two  weeks.  Plans  are  under  way  for  the 
removal  of  the  machine  shops  and  oflBces  of  the  Eastern  Divi- 
sion from  the  present  location  at  221  Federal  street  to  the  yard 
of  the  Department  on  Albany  street,  near  Concord  street.  A 
new  brick  stable  is  now  nearly  completed  at  this  yard,  and  a 
contract  has  been  awarded  for  a  building  to  contain  the  ma- 
chine shop  and  the  offices. 
The  Waste  Detection  Department   has  made  during  the  year 


examinatioDS   of   37,000  premises,  and  8,800  reports  of  defec- 
tive fixtures  have  been  made. 

In  the  Western  Division  surveys  and  borings  for  the  much- 
needed  new  water  basin,  Dam  No.  5  so  called,  were  begun 
immediately  after  the  passage  and  approval  of  the  necessary 
loan  order  by  the  City  Council  this  autumn,  and  the  work  of 
construction  will  be  began  as  early  in  the  spring  as  the  weather 
wQl  permit.  Surveys  are  also  being  made  for  the  acquisition 
by  eminent  domain  at  an  early  date  of  Whitehall  Pond  and 
other  lands  and  water  rights  necessary  for  the  development  and 
protection  of  the  supply. 

A  contract  was  made  and  work  begun  on  the  new  outlet 
dam  at  Lake  Cochituate,  which  should  be  completed  by  the  end 
of  another  season,  and  the  lining  of  a  portion  of  the  Bea- 
con-street tunnel,  which  had  threatened  to  cave  in,  is  steadily 
progressing.  At  the  Chestnut-Hill  Pumpiug  Station  an  elec- 
tric-light plant  has  been  put  in  and  is  in  operation,  and  a 
small  biological  laboratory  has  been  erected  and  supplied 
with  the  necessary  apparatus  under  the  direction  of  a  com- 
petent assistant  for  a  systematic  study  of  the  animal  and 
vegetable  organisms  which  may  be  found  in  the  water  sup- 
ply. It  is  hoped  that  this  innovation  will  be  of  much 
service  in  helping  the  Department  ta  aixive  at  more  accu- 
rate knowledge  regarding  the  character  of  the  supply. 

In  accordance  with  the  direction  of  the  Board  the  Engi- 
neer has  begun  a  series  of  filtration  experiments  with  a  view 
to  formulating  at  an  early  day  a  plan  for  the  filtration  of 
the  entire  supply,  data  concerning  which  we  hope  to  present 
by  the  end  of  another  year. 

We  are  glad  to  report  that  the  Framingham  sewerage  sys- 
tem is  in  operation,   and  that  connections  by  the  parties  who 

128  '  APPENDIX. 

drain  into  the  Boston  water  supply  are  being  made  with 
reasonable  despatch,  which  could  develop  into  celerity  with 
advantage  to  the  City  of  Boston.  The  plan  for  the  disposal 
of  the  sewage  of  Marlboro'  has  been  revised,  and  a  hearing 
on  the  same  is  shortly  to  be  held  before  the  State  Board  of 

The  whole  important  question  of  pollution  will  be  treated 
at  length  by  the  Board  in  its  annual  report.  We  beg  to 
state  that  the  matter  is  being  carefully  studied  and  systema- 
tized at  the  present  time  with  a  determination  to  putting  an 
end  to  such  abuses  as  exist  in  the  Cochituate  and  Sudbury 
system.  Several  injunctions  have  been  obtained  against  par- 
ties polluting  the  supply. 

In  the  Mystic  Division,  in  addition  to  the  regular  work, 
Important  repairs  have  been  made  on  the  dam  at  Mj-stic 
Lake,  and  an  independent  condenser  and  air  pumps  for 
engines  1  and  2  are  now  being  put  in.  Considerable  labor 
has  been  expended  in  cleaning  the  various  ponds  of  the  sys- 
tem, in  the  hope  of  saving  the  supply  from  further  det«- 
rioration.  Concerning  the  future  of  the  Mystic  the  Board 
has  not  at  this  moment  arrived  at  a    definite  conclusion. 

The  daily  average  consumption  of  water  has  been  83 
gallons  per  head  on  the  Cochituate  and  Sudbury  supply,  and 
70.5  gallons  per  head  on  the  Mystic  supply,  a  decrease  of  8.5 
per  cent,  in  the  case  of  the  former,  and  5.1  per  cent,  in  the 
latter,  as  compared  with  the  previous  year. 

Acting  under  advice  of  the  City  Engineer  we  have  informed 
the  City  Council  that  a  new  engine  is  needed  at  the  Chestnut- 
Hill  Pumping  Station  to  supplement  those  now  in  use,  and  the 
passage  of  a  loan  order  to  build  the  same  is  very  desirable. 

The  total  number  of  the  employees  of  the  entire  Department 


at  this  date,  being  our  winter  force,  is  417,  subdivided  as  fol- 
lows :  Eastern  Division  229 ;  Western  Division  81 ;  Mystic 
Division  73 ;  Water  Board  office  8 ;  Special  Agents  3 ;  Engi- 
neering force    (temporary)   23. 

Respectfully  submitted, 

The  Boston  Wateb  Boasd, 



CocHiTUATE  Water-Works. 

MaiTitenance  Account* 

Statement  of  Expenditures  from  January  1,  1889,  to  January  1,  2890. 

Boston  Water  Board,  Salaries,  Trayelling  EzpenseB,  Printing, 

Stationery,  etc $16,235  78 

Water  Registrar's  Department,  Salaries,  Trarelling  Expenses, 

Printing,  Stationery,  etc 41,213  18 

Eastern   Diyision,    Salaries,    Trayelling    Expenses,    Printing, 

Stationery,  etc 17,208  11 

Western  Diyision,  Salaries,  Trayelling  Expenses,  Printing,  Sta- 
tionery, etc 10,977  95 

Inspection  and  Waste  Diyision                           .        .        ...  7,485  48 

Meter  Diyision 6,487  86 

Federal-Street  Yard 9,916  46 

Albany-Street  Yard 7,653  25 

Lake  Cochitnate 8,807  76 

Cochitnate  Aqueduct           .      ^ 2,091  68 

Sudbury  Aqueduct 19,808  60 

Sudbury  Basins 8,289  03 

Chestnut  Hill  Driyeway 1,779  64 

Special  Agents  (8),  Salaries,  Trayelling  Expenses,  etc.  .        .  8,802  51 

Telephones 932  75 

Cktrried  forward,  $157,489  44 


Brought  forward^  $167,489  44 

Maverick  Wharf,  Salary  of  Agent,  Rent,  Coal,  etc.        .        .  2,119  02 

Main  Pipe,  relaying 17,744  27 

Main  Pipe,  repairing 7,149  47 

Hydrants,  repairing 18,029  00 

Stopcocks,  repairing 2,417  49 

Hydrant  and  Stopcock  Boxes 4,835  18 

Tools  and  repairing 9,960  71 

Streets,  repairing 10,392  79 

Seryice  Pipe,  repairing 12,553  91 

Fountains 3,486  56 

Stables 10,489  23 

High  Seryice,  Chestnut  Hill 19,265  70 

High  Service,  East  Boston 2,140  77 

High  Service,  West  Roxbury 3,159  58 

Chestnut  Hill  Reservoir 25,177  09 

Parker  Hill  Reservoir 1,370  15 

East  and  South  Boston  Reservoirs 742  20 

Fisher  Hill  Reservoir 871  91 

Brookline  Reservoir 972  93 

Meters,  setting  and  repairing 4,673  85 

Waste  Detection 16,597  87 

Analyses  of  Waters 845  00 

Damages 2,004  92 

Taxes 1,931  50 

Collection  of  Water  Rates 2,500  00 

Inspection  of  Water  Sources 1,646  92 

Improvement  of  Sudbury    and  Cochituate  Supply         .        •  4,505  61 

New  Stable,  Albany-Street  Yard 290  13 

Merchandise  sold  from  Stock Ill  13 

Old  Material,  charged  off  from  Stock  Account     .        .        .  1,012  55 

•345,986  88 


Appropriation,    Cochitoate    Water- Works,    for    year    ending 

April  80,  1890 $407,660  00 

Expended,  inclnding  January  draft  1890,  to  date  (Decem- 
ber 27,    1889,)   9  months 240,584  64 

Balance  unexpended 1^167,075  46 

ExTEKsioN  or  Mains,  bto. 

Expenditures  from  January  2,   1889,  to  January  I,  1890. 

Main  Pipe,  Uying 9231,895  68 

Service  Pipe,   laying 42,817  01 

Sidewalk  Stopcocks 22,879  88 

Extension  to  Long  Island 86,073  75 

Connection  with  Charlestown 11,127  44 

Miscellaneous 2,926  04 

New  Main,  East  Boston   (Balance) 144  46 

$347,863  76 

Balance  appropriation,  extension  of  mains,  etc., 

on  May  1,   1889 $8,009  14 

Additional  appropriation   1889     ....       350,000  00 

$358,009  14 

Expended,  including  January  draft  1890,  to  date  (Decem- 
ber 27,  1889,)   9  months 265,113  79 

Balance  unexpended $92,895  35 

High  Sbbyiob. 

Balance  appropriation    May   1,   1889 $12,436  87 

Expended,  including  January  draft  1890,  to  date  (Decem- 
ber 27,    1889,)   9  months 12,411  28 

Balance    imexpended $25  09 

Introduction  of  Meters  and  Inspection. 
Coehiiuate    Water-  Works. 

Balance  appropriation  May   1,   1889 $19,465  22 

Expended  inclu(Ung  January  draft  1890,  to  date  (Decem- 
ber 27,   1889,)   9  months 12,685  97 

Balance  unexpended $6,779  25 


iMPBOTEMBirr  OF  Laks  Coghttuatb. 

Balance  of  appropriation  May  1,  1889 $14,815  99 

Expended,  including  January    draft    1890,  to  date   (Decem- 
ber 27,   1889,)   9  months 3,608  68 

Balance  unexpended $11,807  86 

Additional  Supply  of  Watbb, 
Balance  appropriations  May  1,   1889        .        .      $20,194  89 
Additional  appropriation  (order  Noyember  13, 

1889) 1,046,000  00 

$1,066,194  89 

Expended,  inclnding  January  draft  1890,  to  date  (Decem- 
ber 27,   1889,)   9  months 8,602  61 

Balance  unexpended 81,061,692  28 

Mtstic  Watee-Works. 
Maintenance  Account. 
Statement  of  ^cpendiiures  from  January  1, 1889 y  to  January  1, 1890. 
Boston  Water  Board,  TraTelling  Ezpenaes,  Salaries,  Printing, 

etc $6,428  40 

Water  Begistrar's  Department,  Travelling  Expenses,  Salaries, 

Printing,  etc 9,722  47 

Superintendent's  Department,  Travelling  Expenses,   Salaries, 

Printing,  etc 6,471  81 

Oflf  and  On  Water 2,841  90 

Mfun  Pipe,  relaying 11,437  84 

Main  Pipe,  repairing 986  04 

Service  Pipe,  laying 1,849  97 

Service  Pipe,  repairing 3,060  01 

Hydrants,  repairing 700  28 

Gates,  repairing 962  87 

Streets,  repairing 922  96 

Lake 6,203  74 

Carried  forwoA'dy  $60,077  78 


Brought  forward^  $60,077  78 

Condnit 949  41 

Engine-House 2,892  82 

Stables 4,823  68 

Eesenroir 2,887  78 

Pamplng  Service 24,624  88 

Repair  Shop 2,943  88 

Fonntains 863  21 

Tools  and  Repairing 739  64 

Mystic  Sewer 21,741  66 

Waste  Detection  Serrice 2,039  75 

Inspection  and  Waste  Division 1,869  29 

Meter  Division 2,101  30 

Meters,  setting  and  repairing 984  63 

Special  Agents 144  44 

Protection  of  Water  Sources 1,344  76 

Taxes 68  80 

Analyses  of  Water 8J  00 

Merchandise  sold 29  84 

Main  Pipe,  laying 1,31048 

Portion  of  cost  of  New  Main  to  East  Boston          ...  14  24 

Connection  with  Cochitoate  High  Service         ....  1,606  21 

Connection  with  Cochituate  Low  Service          ....  2,692  63 

$126,660  21 

Appropriation,  Mystic  Water- Works,  for  year  ending  April  30, 

1890 $174,366  00 

Expended,  including  January  draft  1890,  to   date  (December 

27,  1889,)  9  months 86,366  17 

Balance  unexpended $88,998  83 

Iktroduction  of  Mbtebs  and  Insfectiok. 

Mystic  Water- Works. 

Balance  appropriation  May  1,  1889 $886  b^ 

Expended  to  date  (December  27,  1889) 143  75 

Balance  unexpended $742  81 



Office  of  the  Water  Registrar, 

CiTT  Hall,  December  28,  1889. 
Hon.  Thos.  N.  Hart,  Mayor, 

Sir:  —  In  response  to  Circular  85  I  herewith  submit  the  fol- 
lowing concise  statement  of  work  performed,  together  with  the 
expenses  of  this  Department,  for  the  calendar  year  1889,  also 
the  unexpended  appropriation  for  the  year  ending  April  30, 

CocHnuATB  Works. 

Total  receipts  from  January  1,  1889,  to  date      .  $1,380,680  27 
Total  receipts  for  corresponding  time  in  1888     .     1,347,118  79 

Increase $33,561  48 

Mystic  Works. 

Total  receipts  from  January  1,  1889,  to  date     .      $319,101  19 
Total  receipts  for  corresponding  time  in  1888      .       304,272  26 

Increase $14,828  93 

The  actual  expenses  of  this  Department  from  January  1, 
1889,  to  date  have  been  950,930.27.  The  unexpended  appro- 
priation for  the  year  ending  April  30,  1890,  is  $23,563.89, 
and  is  ample  to  continue  the  work  of  the  Department  for  the 

A  comparative  statement  of  work  performed  in  the  service 
branch  of  the  Department  for  the  years  1888  and  1889 :  — 















New  service-pipes  laid 

Cases  service-pipes  repaired 

Gases  off  and  on  water  for  nonpayment 

Cases  off  and  on  water  for  repairs 

First  time  applications 

The  total  number  of  persons  now  employed   in   this  Depart- 
ment is  43,  including  14  laborers. 

Respectfully  submitted, 


Water  Registrar. 


Sealer's  Office,   December  28,  1889. 
To  His  Honor  the  Mayor. 


Sir  :  —  In  compliance  with  Circular  35  I  respectfully  sub- 
mit the  following  statement  of  the  operations  of  this  De- 
partment from    January   1,    1889,   to  December   26,  1889. 

Number  of  scales  tested 


"         *'   weights  tested    . 

.     32,984 

**         "   dry  measures  tested  . 


*'        **   wet  measures  tested  . 


'*         "   yard-sticks  tested 

.       1,262 

"        *'   charcoal  baskets  tested 


*'         "   grain  tubs  tested 


"        '*   coal  baskets  tested    . 


The  expenses  of  this  Department  for  the   current  calendar 
year    (excluding     the     draft    of    January    1,     1889)    will     be 


The  unexpended  appropriation  on  January  1,  1890,  will  be 
nearly  sufficient  to  continue  the  work  of  the  Department  to 
the  end  of  the  fiscal  year,  April  80,  1890.  On  account  of 
expenditures,  which  were  not  called  for  in  the  estimates,  a 
small  appropriation  may  be  necessary  to  carry  the  Depart- 
ment to  April  30,  1890. 

I  find  that  an  important  part  of  the  duty  of  this  Depart- 
ment has  not  been  properly  attended  to.  I  would  recommend 
that  a  Deputy  Sealer  be  appointed  for  the  special  purpose 
of  testing  and  sealing  charcoal  and  coal  baskets,  and  ped- 
lers'  measures  of  all  kinds,  which  would  be  a  benefit  to  the 
poor  people  of  this  City. 

The  number  of  persons  employed  in  this  Department  is  six. 

Respectfully  submitted, 


Sealer  of  Weights  and  Measures. 






.       * 

4Ua^  k-ijf.  /^..^-s-.i'-^ 








JANUARY    I,   1 89 1. 

Rockwell  and  Churchill,  City  Printers. 

189  I. 





THOMAS    N.    HART, 




JANUARY    I,   1 89 1. 


risfrr-  •«  ■ 


>1  M03T0W1A.   S; 


Rockwell  and   Churchill,   City  Printers. 

I  89  I. 


To  THE  Honorable  the  City  Council. 

Gentlemen :  —  In  taking  leave  of  the  City 
Government  by  means  of  a  Farewell  Message, — 
foUoMdng  the  precedent  of  the  greatest  Mayor  we 
ever  had,  the  elder  Quincy,  —  it  seems  right  to 
dismiss  personal  motive,  and  to  submit,  for  the 
consideration  of  the  City  Government  and  the 
citizens,  such  conclusions  as  an  experience  of  eight 
years  in  the  service  of  the  City,  two  of  them 
in  the  Mayoralty,  may  justify. 


The  duty  of  governing  our  great  cities  satis- 
factorily and  right,  it  seems  to  me,  is  but  in 
part  a  question  of  law,  and  very  largely  a  mat- 
ter of  good  citizenship  properly  exercised.  "When 
highminded  citizens  choose  the  right  persons  to 
make  up  their  City  Government  and  School 
Committee,  it  is  of  secondary  importance  what 
particular  laws  and  ordinances  may  be  in  force. 
The  public  will  be  properly  served.  With  ill- 
informed    or   ill-disposed  persons    in    officet  even 


rigid   and  perfect  laws   will    not  be    a     sufficient 
protection   of  the   public   interest. 

The  highest  vote  ever  reached  in  our  City  elec- 
tions, in  1888,  was  63,548.  With  a  population  of 
450,000,  we  ought  to  have  nearly  90,000  male 
voters.  The  abstainers,  it  will  be  found,  are  mostly 
citizens  who  favor  good  government;  for  those 
that  look  to  special  benefits  from  the  City  are 
now  on  the  voting-lists.  It  is  important,  in  my 
opinion,  to  bring  out  a  full  vote  at  every  elec- 
tion, to  naturalise  our  residents  as  fast  as  pos- 
sible, and  to  teach  the  duties  of  citizenship  where- 
ever  possible,  notably  in  our  schools.  We  want 
good  citizens.  Good  citizens  alone  are  good 


We  shall  have  the  best  possible  government 
when  all  our  citizens  having  the  constitutional 
qualifications  vote  as  nearly  right  as  they  can,  and 
when  our  laws  are  brought  as  near  perfection  as 
reason  and  experience  dictate.  The  constitution  of 
a  great  American  city  should  be  substantially  like 
that  of  the  United  States.  In  Boston  we  have 
taken  two  long  steps  in  that  direction.  Our  charter 
of  1822  drew  a  sharp  line  between  the  judiciary 
and  all  other  government  duties,  and  nobody  has 
ever  thought  of  returning   to    the   confusion   that 


marked  our  Town  Government,  In  the  Act  of  1885 
(ch.  266)  we  have  separated  our  City  Council 
from  the  Executive,  Time  has  justified  this  div- 
ision of  power.     But  more  remains  to  be  done. 

I  am  of  opinion  that  our  Common  Council 
should  have  concurrent  power  with  the  Board  of 
Aldermen,  and  that  a  City  Council  of  two  branches 
should  be  retained,  as  should  the  system  of  Alder- 
manic  Districts.  State  and  national  Senators  are 
elected  by  districts  and  States;  there  are  no 
Senators  at  large.  Neither  should  there  be  Aldei:- 
men  at  large.  And  as  long  as  our  Board  of 
Aldermen  has  the  prerogative  of  confirming  or 
rejecting  nearly  three  thousand  executive  appoint- 
ments,  —  a  power  which  should  remain  where  it 
is,  —  the  Common  Council  might  have  the  sole 
right  of  originating  finance  bills.  The  members 
of  the  Common  Council  and  the  School  Commit- 
tee should  receive  compensation  for  their  services, 
and  perquisites  should  be  abolished.  At  present 
the  poor  cannot  well  afibrd  to  serve  in  the  Com- 
mon Council  or  the  School  Committee.  Yet  the 
City  has  need  of  their  services,  and  the  City  Gov- 
ernment belongs  to  all  alike.  Let  us  beware  of 
making  public  offices  the  natural  property  of  the 
rich.  In  a  government  of  the  people  and  for  the 
people,  the  voice  of  the  poor  should  not  be  un- 



I  renew  my  recommendation  for  the  consoUda- 
lion  of  certain  Executive  Departments  for  the 
benefit  of  the  public  and  the  public  service.  The 
number  of  separate  Departments  directly  controlled 
by  the  Mayor  of  the  City  is  thirty-nine,  with 
ninety-two  separate  heads,  not  including  more 
than  a  hundred  sub-heads  or  assistants  subject  to 
the  Mayor's  confirmation,  and  excluding,  also,  more 
than  twenty-five  hundred  Executive  appointments, 
made  annually  subject  to  confirmation  in  the  Board 
of  Aldermen.  If  the  Mayor  wishes  to  make  his 
appointments  from  actual  knowledge,  sufficient 
time  will  not  be  left  for  administrative  work  and 
for  the  necessary  inspection  of  the  thirty-nine 
separate  Departments  under  his  control,  not  to 
mention  the  half-dozen  independent  Depart- 
ments and  special  boards  subject  only  to  his 
general  supervision.  If  the  Mayor  cannot  readily 
keep  familiar  with  the  Departments,  how  can  the 
plain  citizen  who  comes  to  City  Hall  to  transact 
business  ?  The  President  of  the  United  States 
has  eight  Cabinet  officers,  the  Mayor  of  Boston 
has  ninety-two. 

We  need  a  Board  of  Public  Works  forthwith, 
and  other  consolidations  in  time.  There  is  no 
valid    reason    why  the  five  Ferry  Commissioners, 



established  by  Ordinance,  should  not  be  replaced 
by  one  Superintendfent,  to  be  appointed  by  the 
Mayor  subject  to  confirmation  in  the  Board  of 
Aldermen.  Mt.  Hope  Cemetery  should  be  placed 
under  similar  control.  I  think  one  Record  Com- 
missioner sufScient.  The  Fire  Department,  the 
Law  Department,  the  Park'  Department,  the  Public 
Institutions,  and  the  entire  Water  department 
should  have  one  well-paid  head  each,  three-headed 
commissions  tending  to  divide  responsibility,  and 
to  give  a  less  energetic  and  harmonious  service  than 
the  public  requires.  The  office  of  Fire  Marshal, 
established  by  the  Commonwealth,  should  be  abol- 
ished, and  its  duties  transferred  to  the  Fire 
Department.  In  the  Records,  Fire,  and  Law  De- 
partments the  simplification  can  be  established  by 
Ordinance.  Constables  should  be  appointed  by  the 
Board  of  Police.  All  weighers  and  measurers 
should  be  attached  to  the  Department  .of  Weights 
and  Measures. 

TERMS  OP  orncB. 

Heads  of  Departments  should  be  appointed 
during  good  behavior,  and  all  subordinates,  save 
in  a  few  cases,  should  come  under  the  civil- 
service  regulations  of  the  Commonwealth,  partly 
to  abolish  favoritism,  that  curse  of  government, 
partly  to    save    time   usually  wasted  when  places 


in  the  public  service  are  filled  upon  the  request 
of  interested  persons.  Officers  appointed  by  the 
Mayor  and  confirmed  by  the  Board  of  Aldermen, 
unless  in  charge  of  a  Department  established  by 
Ordinance,  should  be  appointed  for  one  year  only. 
At  present  Constables,  Weighers  of  Coal,  and  other 
nunpr  officers  serve  until  removed,  or  until  others  are 
appointed  in  their  respective  places. 

I  think  our  present  system  of  annually  electing 
the  entire  City  Government  little  less  than  bar- 
barous. There  is  no  sound  reason  why  Mayors 
should  not  be  elected  for  terms  of  two  or  three  years, 
and  why  the  members  of  the  City  Council  should 
not  be  chosen  for  like  terms,  one-half  or  one-third  to 
be  voted  for  annually.  In  that  way  the  City  Coun- 
cil would  become  a  perpetual  body,  and  the  annual 
elections  would  no  longer  give  so  imfortunate  a 
shock  to  the  public  service  and  the  interests  of  the 
City.  Annual  elections  as  now  held  are  neither 
instructive  nor  useful.  Longer  terms  of  elective 
officers  are  conservative  and  will  place  upon  voters 
a  greater  duty. 


In  view  of  the  great  undertakings  begun  years 
ago,  very  little  new  work  has  been  attempted 
during  the  past  two  years.  Of  the  great  works 
not  yet  completed,  the  parks  and  the  new  Public- 


Library  building  require  still  further  appropria- 
tions. These  enormous  enterprises,  to  which  the 
new  County  Court-House  should  be  added,  are 
carried  on  under  special  authority  conferred  by 
the  State,  the  City  having  very  little  to  do  beyond 
paying  the  bills  and  accepting  the  outcome.  The 
Harvard  Bridge  may  be  added,  as  it  was  built 
under  orders  from  the  Commonwealth.  Completed 
some  time  since,  it  is  not  yet  open  to  travel, 
through  no  fault  of  the  City  of  Boston.  The 
works  referred  to  have  cost,  so  far,  $10,782,644.15 
in  actual  disbursements;  and  when  they  are  com- 
pleted, hundreds  of  thousands  of  dollars  will  be 
required   annually   for   maintenance. 

I  shall  not  find  fault  with  these  vast  under- 
takings. They  are  worthy  of  a  rich  and  proud 
city.  But  it  might  be  proper  to  plan  more  care- 
fully before  millions  are  sunk  in  a  new  building  or 
other  public  work;  and  the  sooner  we  charge  a 
good  part  of  the  cost  into  our  taxes,  the  better 
it  will  be.  The  idea  that  the  future  should  pay 
for  improvements  it  will  inherit,  is  not  altogether 
sound.  The  future  will  have  its  own  duties  and 
new  enterprises.  The  smaller  the  debt  we  be- 
queath to  posterity,  the  more  we  shall  be  hon- 
ored and  called  prudent.  A  debt  is  a  burden. 
A  heavy  debt  is  a  calamity. 



The  present  City  Hall  should  be  extended,  with- 
out unreasonable  delay,  to  Coui*t  Street.  The  ad- 
dition should  be  plain,  very  substantial,  and  as 
nearly    jBireproof   as   skill    can   make  it.     The   oc-  ! 


cupation  of  the  new  Court-House  has  begun.     The 
old    Court-House    should    be    vacated    as   rapidly  j 

as  possible,  and  its  rebuilding,  for  City-Hall 
purposes,  should  begin  at  once,  partly  to  put  an 
end,  as  soon  as  possible,  to  the  rents  we  now 
pay  in  accommodating  City  and  County  officers 
(at  present,  $38,032.06  a  year),  partly  to  bring 
all  City  officers  together  in  one  central  building. 
I  am  confident  that  the  proper  place  for  the  Fire 
Commissioners  is  in  City  Hall,  and  not  in  the 
headquarters  building  contemplated  by  a  hasty 
appropriation  of  $165,000  made  in  the  conster- 
nation after  the  great  fires  of  1889.  The  Fire 
Commissioners  are  not  appointed  to  put  out 
fires,  or  to  command  engine  companies,  but  to 
manage  the  property  and  the  affairs  of  the  De- 
partment.  They  need  a  business  office  only,  and 
not  a  show  place  that  is  likely  to  do  more  harm 
than  good.  The  Department  Chief,  being  the 
officer  in  command  at  fires,  has  a  centrally- 
located  office  in  Mason  Street,  which  answers  all 
legitimate   purposes. 



The  City  has  been  specially  liberal,  during  the 
past  two  years,  to  our  public  schools.  Two  large 
school-houses  have  been  completed  and  dedicated; 
four  large  school-houses  have  been  authorised  and 
partly  contracted  for;  and  the  great  Roxbury  High- 
School  building  approaches  completion.  The  allow- 
ance for  current  expenses,  mostly  for  the  salaries 
of  teachers,  has  been  generous,  and  the  relations 
between  the  School  Committee  and  City  Hall  have 
been  exceedingly  friendly.  It  seems  wise  to  build 
plain  school-houses  as  requirements  arise,  and  to 
devote  increasing  attention  to  the  lower  grade  of 
schools.  We  shall  deserve  the  thanks  of  our 
fellow-citizens  and  posterity  when  we  give  the 
children  in  our  City  a  plain  English  education 
coupled  with  as  much  manual  and  industrial 
training  as  may  be  possible.  The  future  voter 
and  wage-worker  will  need  his  senses,  plain 
English,  and  skilled  hands  much  more  than  the 
rudiments  of  professional   learning. 


The  Water  Works  of  the  City  are  in  the  best  con- 
dition ever  reported.  The  water  supply  is  pure  and 
abundant,  and  the  rates  to  consumers  were  reduced 
7  per  cent,  a  year  ago,  and  10  per  cent,  a  few  days 


ago.  For  the  next  ten  years  the  system  may  be  ex- 
pected to  meet  the  wants  of  the  community.  The 
addition  of  Whitehall  Pond  to  the  system,  the  im- 
provement of  the  Cedar-Swamp  district,  and  the 
expected  completion  of  Basin  Five,  place  the  Water- 
Supply  Department  in  a  strong  position.  The  work 
of  the  Department  toward  assuring  the  purity  of  the 
supply  is  entitled  to  further  encouragement,  and  the 
acts  of  the  Commonwealth  in  that  direction  are 
highly  appreciated. 


The  lighting  of  the  City  is  excellent.  In  two 
years  the  number  of  electric  lights  has  been  in- 
creased from  704  to  1125,  and  their  cost  materially 
reduced.  The  number  of  gas  lights  has  been 
lessened  from  10,104  to  9281,  the  number  of  oil 
lamps  has  been  increased  from  2994  to  3056.  The 
Department  has  been  well  managed. 


The  City  needs  authority  for  laying  out  and 
establishing  the  grade  of  streets  throughout  its 
territory.  For  obvious  reasons  the  Board  of 
Street  Commissioners,  whose  duties  have  been 
discharged  with  equal  fidelity  and  usefulness, 
should  be  clothed  with  authority  for  establishing 
lines  beyond  which  no  building  could  be  erected. 


This  will  obviate  the  costly  experience  the  City- 
has  had  in  the  Church-Street  district,  and  the 
indiscriminate  erection  of  buildings  in  new  streets 
to  suit  the  preference  of  owners   alone. 

Kneeland  Street,  from  Harrison  Avenue  to 
Albany  Street,  and  Pleasant  Street,  from  Park 
Square  to  Washington  Street  should  be  widened, 
to  prevent  blockades  near  the  southern  railroad 
stations,  and  to  relieve  the  South-Boston  travel. 
To  relieve  Washington  and  Treraont  Streets  as 
the  great  thoroughfares  between  the  shopping- 
district  of  the  City  and  the  northern  railroad 
stations,  I  suggest  that  Staniford  and  Temple 
Streets  be  widened,  and  that  easy  communication 
for  street  cars  and  teams  be  established  between 
these  thoroughfares  and  Park  Street.  This  im- 
provement, fairly  invited  by  the  addition  to  the 
State  House,  would  divert  a  part  of  the  traffic 
now  passing  through  Adams  and  Scollay  Squares, 
beside  opening  a  new  section  of  the  City  for 
first-class  business   purposes. 


Much  expensive  re-paving  is  needed  throughout 
the  section  south  of  Causeway  Street  and  north 
of  Beach  Street.  Boylston  Street  should  be 
paved  with  granite  blocks  from  Church  Street 
to  West  Chester  Park;    Chester    Park  from  Har- 


vard  Bridge  to  Boston  street,  Dorchester;  and 
Dorchester  Avenue  to  Lower  Mills.  For  our  resi- 
dence streets  a  new  pavement  will  have  to  be 
adopted.  Macadamising  suffices  for  parkways  and 
suburban  or  lightly- travelled  streets;  for  sections 
like  the  South  End,  the  Back  Bay,  Charlestown, 
and  any  well-travelled  City  street,  it  is  insufficient 
and  unsatisfactory,  being  muddy  in  wet  weather, 
dusty  in  dry  seasons,  and  very  costly  to  maintain 
at  that.  The  demands  of  the  people  for  better 
pavements  are  imperative.  Perhaps  it  may  be  best 
to  resort  to  rock  asphalt,  the  imitations  of  which, 
containing  coal  tar,  have  proved  unequal  to  the  re- 
quirements of  a  city  like  Boston.  The  subject  is 
important  enough  to  be  entrusted  to  a  commission 
of  paid  experts,  with  instructions  to  consult  the 
experience  of  other  communities.  The  National 
Government  has  promised  to  submit  special  con- 
sular reports  upon  this  topic.  Meanwhile  our 
Street  Department  has  been  conducted  during  the 
past  two  years  with  great  efficiency  and  with  xm- 
failing  fidelity  to  the  City  and  the  citizens.  The 
censure  heaped  upon  the  Dapartment  and  its  hon- 
orable Superintendent  should  have  been  directed 
asrainst  our  financial  resources.  The  entire  force 
of  the  Department  has  been  employed  without 



Our  sewers  are  not  satisfactory.  Many  of  them 
are  antiquated,  and  should  be  rebuilt  systemati- 
cally rather  than  piecemeal.  The  Improved 
Sewerage  System  has  given  some  relief,  and  the 
Metropolitan  system,  both  north  and  south  of 
Charles  river,  promises  more.  But  the  smaller 
sewers  are  not  what  they  should  be,  least  of  all 
in  the  older  sections   of    the    Citv.      During   the 


past  five  years  the  City  has  not  expended  half 
the  sums  really  needed  for  sewers,  and  some  day 
the  subject  may  force  itself  unpleasantly  upon 
public  attention. 

For  the  first  time  in  many  years  the  mortality 
rate  of  the  City  is  reported  at  less  than  twenty- 
three  to  each  thousand  inhabitants.  This  wel- 
come gain  for  the  year  1890  cannot  be 
maintained,  unless  the  City  expends  millions  for 
sewers,  and  takes  every  advantage  of  the  Met- 
ropolitan Sewerage  system  now  under  construction. 
It  will  save  wealth  and  sorrow  to  reduce  the 
annual   death  rate  below  two   per  cent. 


The  curt  notice  of  the  War  Department,  in  1888, 
that  by  this  day  the  Charles-river  bridges  should  be 
altered,  was  met  in  a  spirit  of  fairness,  and  has  been 


indefinitely  extended,  the  Corporation  Counsel  ren- 
dering services  of  eminent  value.  The  Law  De- 
partment, of  which  he  is  the  chief,  has  rendered 
acceptable  assistance  in  replacing  a  government  of 
committees,  traditions,  and  law  by  a  government 
rather  of  law.  This  transition,  not  yet  complete,  is 
bequeathed  to  the  fostering  care  of  our  successors. 
Boston  needs  a  government,  not  of  party  or  leaders, 
but  of  plain  law. 


The  finances  of  the  City,  though  carefully  ad- 
ministered, are  not  satisfactory.  Our  tax  laws 
are  made  by  the  State,  leaving  little  latitude  to 
the  City.  The  present  Government  has  asked  for 
the  establishment  of  occupation  fees,  with  special 
reference  to  corporations  occupying  our  streets. 
Should  this  principle  prevail,  it  may  lead  to 
revenues  equitable  in  themselves  and  beneficial 
to  the  Treasury  of  the  City.  The  funded  debt 
of  the  City  has  risen  from  $48,576,569.29  on 
December  31,  1888,  to  $55,440,361.06  on  De- 
cember 31,  1890.  This  enormous  increase  of 
$6,863,791.77  in  two  years  is  due  in  part  to  per- 
manent improvements  begun  under  a  previous 
administration,  but  in  part  also  to  borrowing 
money  for  current  expenses.  The  magnitude  of 
the     debt    may    well    give    our   taxpayers    pause, 


the  demands  for  interest  and  sinknag-fund  pur- 
poses being  both  onerous  and  imperative.  I  regret 
to  add  that  the  older  part  of  the  debt  bears 
interest  at  more  than  four  per  cent,  a  year,  and 
cannot  be  refunded,  save  at  the  pleasure  of  the 
bondholders.  The  City  would  gain,  should  all 
municipal  bonds  be  exempt  from  taxation  within 
the   Commonwealth. 

The  net  debt  of  the  City,  being  the  funded 
debt  less  the  sums  actually  in  the  sinking-fund, 
has  grown  from  $26,850,901.99  on  December  31, 
1888,  to  $31,053,496.98  on  December  31,  1890, 
an  increase  of  $4,202,594.99  under  an  adminis- 
tration that  has  not  thought  it  right  to  begin 
costly  improvements,  having  been  confined  to  the 
inglorious  duty  of  wrestling  with  inherited  ex- 
penditures and  with  resources  rigidly  limited  by 
the  double  authority  of  the  State  and  public 
opinion.  The  next  City  Government,  it  is  quite 
clear,  will  have  to  borrow  more  money,  some  of 
it  for  current  expenses  that  ought  to  be  met 
from   current  taxes. 

This  condition  of  things  is  not  creditable  to 
a  community  of  business  men.  Yet  the  law  lim- 
iting our  taxes  for  current  expenses  to  nine 
dollars  on  a  thousand  of  the  assessed  valuation 
still  has  its  champions.  In  sober  truth,  the  com- 
munity   for    itself,   and    the    State    for    us,   must 


choose  between  higher  taxes  and  a  higher  debt. 
Unless  the  spirit  of  our  people  suffers  a  decline, 
our  expenses  will  not  diminish.  Our  streets  and 
sewers  have  suffered  more  than  is  right  and  the 
community  is  willing  to  bear.  To  meet  the  ex- 
penses now  demanded  by  the  public,  we  must 
choose  between  augmenting  our  taxes  or  our  debts. 
Our  taxes  can  be  raised  with  safety,  though  the 
government  that  levies  a  tax  of  fifteen  or  sixteen 
dollars  per  thousand  may  suffer  in  popularity. 
To  issue  bonds  for  current  and  petty  expenses  is 
perilous  in  the  case  of  poor  communities;  in  the 
case  of  a  rich  city  like  ours  it  is  both  near- 
sighted and  immoral.  .  For  six  years  past  we 
have  enjoyed  low  taxes,  and  at  the  same  time 
condemned  the  future  to  pay  in  part  for  what 
we  have  consumed. 

The  cash  in  the  City  Treasury  at  the  close 
of  business  on  December  31,  1888,  was  $3,264,- 
605.59;  on  December  31,  1890,  |5,939,227.36. 
The  year  1888  ended  with  a  legal  borrowing 
capacity  of  |22,028;  the  year  1890  with  a  legal 
borrowing  capacity  of  $1,137,159.  Today  the  City 
can  borrow  $1,800,000.  Accordingly  we  dp  not 
leave  our  successors  without  ample  resources  for 
all  immediate  wants.  We  leave  them  also  a 
government  unsullied  by  our  hands. 

FABEWSLL     HE88AGB.  19 


Gentlemen  of  the  City  Council :  —  The  Gov- 
ernment of  this  year  and  its  immediate  predecessor 
have  been  above  suspicion.  The  work  of  the  two 
years  has  been  done  without  ostentation  and 
without  marked  shortcomings.  The  City  has 
been  almost  free  from  calamities.  I  thank  the 
Departments  for  their  fidelity.  In  thanking  you 
for  the  good .  you  have  done,  I  speak  for  the 
City  we  love  and  for  the  office  of  which  I  now 
take  leave. 








JANUARY    $,   1891. 


Rockwell  and  Churchill,   City  Printers. 

189  I. 

'7  ■  -  ■ 










JANUARY    J,   1891.J 



I  89  I. 


In  Board  of  Ai.derm£n, 

January  5,  1891. 

Ordered^  That  His  Honor  the  Mayor  be  requested  to 
furnish  the  City  Council  with  a  copy  of  his  Inaugural 
Address,  for  publication. 

Passed.  Sent  down  for  concurrence.  January  5,  came 
up  concurred. 

A  true  copy. 

Attest : 


AsaistarU  City  Clerk. 


Gentlemen  of  the  City  Council:  — 

Entering  upon  the  discharge  of  my  duties  as 
Mayor  of  Boston  without  previous  service  in  the 
city  government,  I  shall  at  this  time,  with  a  single 
exception,  refrain  from  discussing  in  detail  the 
works  or  needs  of  the  several  departments,  as  it 
is  proper  that  personal  familiarity  with  their  man- 
agement should  precede  criticism.  The  excep- 
tion will  relate  to  the  ordinary  building  operations 
of  the  city:  namely,  the  construction  and  repair 
of  streets  and  buildings,  matters  to  which  my 
business  and  professional  activity  has  been  largely 
devoted;  and  the  rest  of  this  message  will  be 
confined  to  the  suggestion  of  certain  general 
reforms  of  administration  and  finance  which  I 
have  long  felt  to  be  essential  to  the  eflEiciency 
of  the  government  and  the  development  of  the 

THE     CITY     riKANOES. 

The  financial  condition  of  the  city  should  com- 
mand the  attention  not  only  of  the  City  Council 
but  of  the  citizens   at  large.       The   indebtedness 


of  the  city  is  larger  than  ever  before,  and  is 
increasing  at  a  dangerous  rate.  We  owe  more 
money  and  raise  more  taxes,  per  capita,  than  any 
other  large  city  in  the  country.  The  gross  debt 
is  now  $56,440,361.06,  or  |6,863,791.77  more  than 
on  Jan.  1,  1889;  and  the  net  debt  is  $31,053,- 
496.98,  or  $4,202,594.99  more  than  two  years  ago. 
The  tax-levy  has  also  been  raised,  the  increase 
in  valuations  enabling  the  city  to  vote  an  annual 
appropriation  order,  during  the  past  two  years, 
averaging  $1,040,980  more  than  the  average  ap- 
propriation orders  of  the  preceding  four  years; 
and  the  amount  of  the  appropriations  for  1890 
was  within  $176,281  of  that  for  1884,  the  size 
of  which  frightened  the  citizens  into  demanding 
a  statutory  limitation  of  the  tax-rate.  Notwith- 
standing this  increase  in  the  annual  tax-levy,  and 
the  fact  that  large  additional  sums  have  been 
secured  for  current  expenses  from  the  funded 
debt  (a  practice  wholly  indefensible  on  general 
principles),  the  outgoing  city  government  has 
already,  in  the  first  eight  months  of  the  current 
year,  expended  so  much  of  the  annual  appro- 
priations that  it  will  be  strange  if  there  is  not 
a  deficiency  in  several  departments  before  May  1. 
All  this  might  be  borne  without  public  com- 
plaint if  the  citizens  were  receiving  equivalent 
public  advantages.  But  there  is  a  well-founded 
belief  that    this    is    not    the    case,   and    that    for 

•     / 


the  money  we  spend  we  should  obtain  far 
greater  municipal  benefits.  Improvements  under- 
taken several  years  ago  are  still  awaiting  com- 
pletion; other  improvements  necessary  to  the 
growth  and  prosperity  of  the  city  cannot  even 
be  considered;  the  condition  of  the  streets  is 
bad;  the  construction  of  new  streets  proceeds  in 
as  slow  and  unsatisfactory  a  way  as  ever;  the 
demand  for  new  school-houses  and  the  extension^ 
of  our  public-school  system  in  the  line  of  indus- 
trial education  has  not  been  met;  and  in  other 
respects  the  tax-payers  justly  feel  that  they  are 
not  receiving  anything  like  a  full  equivalent  for 
the  constant  increase  in  taxation  and  indebted- 

Not  only  are  our  taxes  increasing  in  amount, 
but  the  method  of  assessment  renders  them  un- 
necessarily burdensome.  The  double  taxation  of 
incomes,  credits,  paper  values,  and  other  forms  of 
intangible  property  is  a  burden  upon  our  mer- 
chants not  imposed  on  their  competitors  in  the 
other  mercantile  centres  of  the  country,  and  con- 
stitutes one  of  the  chief  drawbacks  to  the  com- 
mercial progress   of  the   city. 

Inasmuch  as  every  dollar  raised  by  taxation 
comes  eventually  from  the  masses  of  the  people 
and  largely  from  the  wages  of  labor,  it  is  the  in- 
terest of  all  the  citizens  that  the  causes  for  this 
condition   of  things  should  be  investigated,   and  a 


remedy,  if  possible,  discovered  and  applied.  Much, 
doubtless,  can  be  accomplished  by  reforms  in  the 
administration  of  the  various  departments,  particu- 
larly by  such  changes  in  methods  as  will  tend  to 
secure  a  greater  concentration  of  service  and  re- 
sponsibility, and  a  complete  return  in  work  for 
the  very  liberal  expenditure  in  salaries  and  wages ; 
but  'in  the  meantime  it  lies  within  the  power  of  the 
City  Council  and  the  State  Legislature  to  inaugu- 
rate certain  general  reforms  in  our  system  of  mu- 
nicipal government  which  will  of  themselves  enable 
us,  on  the  one  hand,  to  realize  the  desire  of  the 
people  for  a  broad  and  progressive  municipal  policy 
without  an  increase  in  taxation,  and,  on  the  other 
hand,  to  simplify  and  render  less  burdensome  the 
taxes  now  collected. 


'  The  present  condition  of  affairs  is  due,  in  my 
judgment,  not  only  to  defective  administrative 
methods,  but  to  the  loose,  haphazard,  and  unsys- 
tematic way  in  which  public  improvements  have 
been  undertaken,  to  a  radically  bad  system  of  tax- 
ation, and  to  the  dependence  of  the  City  Govern- 
ment on  the  State  Legislature. 

The  social  change  which  has  taken  place  during 
the  past  fifty  years  in  the  concentration  of  popula- 
tion in  the  great  cities  of  the  country  has  not  been 


recognized  in  legislation.  The  city  of  Boston  is 
no  longer  a  New  England  town  on  a  large  scale : 
it  is  a  great  commercial  and  industrial  city,  the 
metropolis  of  New  England,  with  a  population 
greater  than  that  of  the  whole  State  of  New  Hamp- 
shire ;  and  it  should  no  longer  be  kept  in  the  lead- 
ing-strings of  the  General  Court,  with  le&&  powers 
of  self-government  than  those  of  many  large  cities 
in  the  most  centralized  monarchies  of  Europe. 
The  prediction  made  at  the  time  when  our  first 
city  charter  was  adopted,  that  *Hhe  only  bill  of 
rights  of  the  town  of  Boston  shall  be  the  will  of 
the  Legislature  of  Massachusetts,'^  has  been  ful- 
filled; and  the  power  of  the  Legislature  over  city 
affairs  has  often  been  exercised  without  the  ap- 
proval of  the  people  or  the  City  Council,  some- 
times in  the  very  face  of  municipal  objection,  and 
generally  without  regard  to  the  future  develop- 
ment of  the  city. 

No  stronger  instance  of  the  unfortunate  conse- 
quences of  the  legal  relations  that  have  hitherto 
obtained  between  the  City  and  the  State  can  be 
found  than  that  furnished  by  the  manner  in  which 
the  control  of  the  streets  of  Boston  has  passed  from 
the  citizens  to  private  corporations.  The  courts 
of  law  took  away  from  the  abutters  their  common- 
law  rights  in  the  soil  of  the  highways,  and  vested 
these  rights  in  the  State;  and  successive  Legisla- 
tures thereupon  proceeded  to  grant  them  out  to 



private  corporations  without  compensation  to  the 
abutters,  either  as  individuals  or  as  members  of 
the  municipal  corporation.  The  evil  results  of  this 
theory  of  the  respective  rights  of  the  State,  the 
City,  and  the  individual  in  the  public  ways  have  at 
last  become  apparent ;  the  supposed  business  neces- 
sities of  one  generation  have  proved  the  burden  of 
the  next;  and  although  an  escape  from  the  present 
conditions  may  be  difficult,  a  proper  regard  for  the 
public  interest  requires  that  a  change  should  be 
made  from  a  system  that  deprives  the  municipality 
of  the  large  revenue  it  might  obtain  from  the  use 
of  its  streets. 

Another  instance  is  found  in  our  system  of 
taxation,  which,  created  and  limited  by  general 
State  laws,  is  wholly  inadequate  to  the  needs  of 
the  city  of  Boston,  however  suited  it  may  be  to 
those  of  the  smaller  country  towns.  If  the  city 
had  the    power    to   raise    its    taxes    (at  least    for 

/  municipal  purposes)  in  such  manner  as  it  saw 
fit,  it  would  undoubtedly  adopt  a  radically  differ- 
ent system  from  that  which  the  Legislature  might 
properly  determine  to  be  best  for  the  smaller 
towns.  It  would  certainly,  for  instance,  be  profi- 
table for  the    city   of   Boston  to    have   the   right 

•  to  levy  its  taxes  to  a  less  extent  on  credits  and 
other  forms  of  personal  property  than  is  possible 
to-day.  We  should  very  likely  prefer  to  raise 
some    portion    of   the  $2,600,000,  or    thereabouts, 


now  collected  from  personal  property,  by » a  tax 
on  legacies  and  successions.  It  would  help  the 
city  treasury  if  the  State  tax  now  collected  from 
private  corporations  enjoying  municipal  privileges 
should  either  be  apportioned  among  the  cities 
and  towns  of  the  Commonwealth  in  proportion 
to  the  value  of  the  locations  granted  by  them, 
rather  than  according  to  the  residence  of  the 
individual  stockholders,  or  abolished  altogether, 
leaving  each  city  free  to  tax  these  corporations  in 
such  manner  as  it  should  deem  equitable.  The 
city  interest  account  could  be  reduced  if  its  bonds 
were  exempt  from  taxation  ;  the  amount  annually 
collected  by  taxing  these  bonds  being  insignifi- 
cant in  comparison  with  the  benefit  to  the  city 
to  be  realized  from  their  exemption,  by  enabling 
it  to   place   its  loans   at  a  lower  rate  of  interest. 

Again,  it  seems  to  me  that  the  city  should 
have  the  right  to  undertake  for  itself,  if  finan- 
cial and  other  conditions  permit,  all  functions  of  a 
public  character  now  commonly  intrusted  to  pri- 
vate enterprise.  It  would  doubtless  generally  be 
the  case  that  these  rights  would  not  be  exer- 
cised, but  the  possession  of  them  would  put  the 
city  in  a  better  position  to  make  terms  with 
individuals  and  corporations  seeking  municipal 
privileges   than   is   now  the   case. 

In  other  words,  the  main  need  of  Boston  is 
greater  powers  of  self-government;  a  result  to  be 


achieved  not  so  much  bj  increasing  or  ex- 
tending the  functions  of  government  as  a  whole, 
as  by  transferring  them  from  the  State  to  the 


There  is  another  reform  in  taxation  which  is 
peculiarly  necessary  to  the  city  of  Boston.  The 
present  plan  of  building  new  streets  is  at  variance 
with  all  sound  principles  of  taxation,  and  has 
been  abandoned  in  many  of  the  newer  cities  of 
the  country.  The  entire  cost  of  building  new  ^ 
streets  should  be  borne  bv  the  abutters  who  are 
the  persons  principally  benefited,  and  not  as  at  ^ 
present  by  the  city.  There  would  be  still  some 
cases  which  it  would  be  well  to  exempt  on  public 
grounds  from  the  operation  of  this  principle,  bijt 
it  should  apply  to  all  ordinary  street  extensions 
and  improvements. 

A  board  or  commission,  charged  with  this 
special  duty,  should  first  lay  out  streets  in  the 
outlying  wards,  where  rights  of  way  can  be 
obtained,  on  a  comprehensive  system  adapted  to 
the  growth  of  the  city  for  years  to  come,  and 
determine  the  location,  grade,  and  other  details. 
A  certain  proportion  of  the  abutters  on  any  of 
these  projected  streets  should  have  the  right  to 
compel    the    city,   on    petition,    to    construct    the 


street,  which  should  be  immediately  filled,  graded, 
paved,  and  suppUed  with  sewers,  water,  curb- 
stones,  and  sidewalks.  The  gas  companies  and 
other  private  corporations  likely  to  ask  for  loca- 
tions in  that  street  should  be  compelled  to  put 
in  their  pipes,  poles,  and  wires  at  the  outset. 
The  money  needed  to  build  these  streets  should 
be  provided  by  special  loans  outside  the  debt 
limit,  and  the  entire  expense  to  the  city  should 
be  divided  pro  rata  among  the  abutting  estates, 
and  charged  as  a  first  lien  upon  them  payable, 
on  long  time,  with  interest  at  6  per  cent.  The 
financial  part  of  the  business  could  be  in  charge 
of  the   Sinking-Fund  Commissioners. 

The  result  of  this  change  would  be  a  slight 
increase  in  the  cost  to  builders  of  getting  their 
houses  ready  for  the  market;  but  I  am  satisfied 
from  personal  experience  that  the  compensating 
advantage  to  all  persons  engaged  in  the  improve- 
ment of  real  estate,  in  having  the  streets  actually 
built  and  completed  when  wanted,  would  outweigh 
the  increased  cost  to  them.'  The  benefit  to  the  '^ 
treasury  of  the  city  is  diflScult  to  compute,  as  the 
books  of  the  various  departments  are  not  kept  in 
such  a  manner  as  to  render  it  easy  to  distinguish 
between  expenditures  for  new  streets,  and  expen-  "^ 
ditures  for  ordinary  street  repairs.  Takij;ig  account, 
however,  of  the  money  spent  by  the  Street  De- 
partment  alone,   including  the   general    appropria- 


tion  for  the  year  and  all  special  appropriations 
and  loans,  I  believe  that  the  proposed  change 
would  effect  a  saving  of  about  half  a  million  dollars 
a  year  in  this  single  department.  There  would 
also  be  a  saving  in  the  other  departments  in- 
trusted with  separate  portions  of  the  work  of 
street  building,  and  a  profit  in  the  interest  account. 
The  city  ought  to  save  in  this  way  at  least  enough 
money  to  clean  the  streets  and  water  them. 

Apart  from  the  financial  benefit  to  the  city  treas- 
ury, the  proposed  change  would,  in  my  judgment, 
give  a  great  stimulus  to  building  operations;  the 
demand  for  street  improvements  would  be  greatly 
increased ;  the  money  would  be  on  hand  to  pay  for 
them;  permanent  employment  would  be  furnished 
to  a  far  greater  number  of  city  laborers  than  is 
now  possible;  the  repeated  tearing  up  of  the  streets 
would  be  done  away  with  to  a  great  extent;  and 
the  growth  and  progress  of  the  city  would  be 
rapidly  and  scientifically  advanced. 


In  connection  with  the  general  subject  of  streets 
I  have  one  further  recommendation  to  make,  and 
that  is,  that  all  those  departments  or  portions  of 
departments  which  to  do  with  the  construc- 
tion, maintenance,  and  repair  of  the  public  streets 
should  be  consolidated  in  one   department,  under 


one  responsible  head.  This  work  is  now  divided 
between  the  Street  Department,  the  Department  of 
Sanitary  Police,  the  Department  of  Bridges,  the 
Department  of  Sewers,  and  the  Water  Board. 

Everybody  recognizes  that  this  division  of  re- 
sponsibility and  work  inures  to  the  disadvantage 
of  the  city  in  many  ways ;  but  there  has  been  no 
general  agreement  as  to  the  best  method  of  relief. 
I  am  opposed  to  the  creation  of  a  board  of  public 
works,  and  also  to  the  consolidation  under  a  single 
head  of  more  departments  than  one  first-class  man 
can  direct;  and  I  do  not  apprehend  that  much 
could  be  saved  in  the  way  of  salaries,  as  there 
would  still,  be*  a  necessity  for  separate  bureaus  or 
divisions,  each  under  a  responsible  head,  for  the 
different  branches  of  the  work.  I  believe,  how- 
ever, that  one  man  can  easily  take  general  charge 
of  the  entire  work  of  street  construction  and  re- 
pair, and  that  a  consolidation  in  one  department 
under  a  single  head  directly  responsible  to  the 
Mayor  of  all  the  work  on  the  streets  now  done 
by  five  or  six  departments  would  promote  economy, 
end  the  present  friction  between  these  departments, 
enable  the  labor,  machinery,  and  appliances  at  the 
city's  command  to  be  used  where  most  needed, 
and  help  to  solve  the  vexed  question  of  the  per- 
manent employment  of  the  city  laborers  in  these 




I  have  called  attention  to  the  necessity  for  lay- 
ing out  the  future  streets  of  the  city  upon  a  sys- 
tematic plan.  There  is  another  problem  connected 
with  the  streets  which  should  also  be  treated  in  a 
comprehensive,  far-seeing  spirit,  to  the  end  that  all 
danger  of  repeating  in  this  case  the  mistakes  in 
laying  out,  widening,  and  extending  streets  which 
have   already  been   so   costly  to  the  city   may  be  I 

avoided.  I  refer  to  the  problem  of  rapid  transit. 
Many  schemes  have  been  suggested  during  the 
past  few  years,  none  of  which,  it  is  safe  to  say, 
are  entirely  satisfactory.  On  the  other  hand,  the 
'demand  for  rapid  transit  is  a  genuine  one,  and 
should  be  met  at  an  early  date.  I  believe  that 
the  city  government  itself  should  grapple  with 
this  problem  and  endeavor  to  settle  it  to  the  satis- 
faction of  the  people,  rather  than  leave  the  matter 
entirely  to  the  interested  action  of  private  cor- 

I  recommend,  therefore,  the  appointment  of  a 
commission  of  experts,  consisting  of  five  persons, 
to  be  appointed  by  the  Mayor,  and  to  receive  a 
sufficient  compensation,  and  an  appropriation  for 
clerical,  travelling,  and  other  expenses,  whose  duty 
it  shall  be  to  consider  the  whole  subject  of  rapid 
transit,  including  elevated  roads,  tunnels,  routes, 
systems,  damages,  companies,  and  in  particular  the 


best  means  of  protecting  the  financial  interests  of 
the  city  as  a  corporation.  While  the  latest  plan 
presented '  by  the  West  End  Railway  Company 
contains  features  of  merit,  and  while  this  company 
can  alone  furnish  to  the  people  the  benefit  of  a 
continuous  trip  on  both  elevated  and  surface  sys- 
tems for  a  single  fare,  yet  the  present  financial 
condition  of  the  city  precludes,  in  my  opinion,  the 
consideration  of  this  proposition.  On  the  other 
hand,  the  company  has  no  right  to  condemn  land 
for  the  purpose  of  building  an  elevated  road  on 
the  route  proposed. 

As  matters  stand,  there  can  be  no  rapid  transit 
road  across  the  city  until  the  State  Legislature 
or  the  city  government  shall  act.  I  believe  the 
proper  course  to  pursue,  both  in  the  interest  of 
the  city  treasury  and  of  the  citizens  at  large,  is 
for  the  city  government  to  take  the  whole  matter 
into  its  own  hands,  and,  without  attempting  to 
interfere  with  the  charter  rights  of  existing  cor- 
porations, proceed,  by  means  of  a  special  com- 
mission, to  devise  a  plan  for  rapid  transit  that 
shall  be  permanently  useful  to  the  people  and 
profitable  to  the  city.  Any  such  plan  thus  re- 
ported and  adopted  by  the  city  government 
would  undoubtedly  receive  the  sanction  of  the 

I    would    have    this    commission    consider    also 
the    kindred    matter    of    quicker    communication 



between  the  city  proper  and  East  Boston,  South 
Boston,  Charlestown,  and  Cambridge.  The  ferries 
and  drawbridges  are  a  source  of  great  annual 
expense,  and  it  is  worthy  of  careful  consideration 
whether  this  expenditure  cannot  be  greatly  dimin- 
ished by  the  construction  of  permanent  means  of 
communication  across  or  under  the  Charles  river 
and  the   harbor. 


The  various  problems  connected  with  the 
Charles-river  basin  should  receive  immediate  at- 
tention. The  railroad  and  other  tide-water  bridges 
interfere  with  navigation,  and  block  the  river  for 
at  least  two  hours  of  every  tide  to  the  passage 
of  small  boats.  On  the  other  hand,  the  re- 
construction of  these  bridges  in  the  sole  interest 
of  a  freer  navigation  would  diminish  greatly  the 
facilities  for  getting  in  and  out  of  the  city.  "We 
have,  also,  in  this  basin  the  opportunity  for  making 
the  finest  water  park  in  any  city  in  this  country; 
an  opportunity  which  should  be  grasped  before 
too  late. 

The  eventual  solution  of  this  whole  problem 
should,  I  think,  be  an  imitation  of  the  plan  adopted 
by  the  city  of  Hamburg,  under  similar  circum- 
stances. We  should  dam  up  the  stream  at  the 
narrowest  point  between  Charlestown  and  Boston, 


and  lay  out  a  series  of  parks  and  boulevards  along 
the  basin  thus  created.  TJie  interests  involved  are 
so  many  and  so  complicated,  that  it  would  be  use- 
less to  speculate  at  present  on  the  cost  or  even 
the  possibility  of  carrying  out  this  idea;  but  it  is 
possible  to  ascertain  the  facts,  and  I  would  sug- 
gest as  the  best  way  of  getting  at  them,  that  the 
city  government  petition  the  Legislature  to  author- 
ize the  Governor  to  appoint  a  commission  to  con- 
sider the  whole  subject  and  report  to  the  next 


One  of  the  chief  improvements  undertaken  in 
recent  years  is  the  extension  of  our  park  system. 
It  is  to  be  regretted  that  constitutional  objections 
prevent  the  application  to  these  improvements  of 
the  practice  obtaining  in  foreign  countries,  where 
the  expense  of  similar  undertakings  is  reduced,  and 
in  many  cases  entirely  covered,  by  condemning  the 
surrounding  land  and  selling  it  on  completion  of 
the  park,  thus  enabling  the  city,  rather  than  pri- 
vate individuals,  to  reap  the  benefit  to  neighboring 
property.  I  believe,  however,  that  this  principle 
could  be  applied,  legislative  authority  being  first 
obtained,  to  some  of  the  park  improvements  which 
the  city  will  be  called  upon  to  undertake  during 
the  next  few  years.  I  commend  this  matter  to  the 
consideration  of  the  City  Council. 



The  present  high  standard  of  our  public  schools 
should  be  maintained,  and  the  appropriations  for 
this  purpose  should  be  as  liberal  as  possible. 
Their  eflSciency  can  be  further  increased,  in  my 
judgment,  by  the  gradual  introduction  into  our 
public-school  system  of  instruction  in  the  man- 
ual and  industrial  arts.  A  manual  training  high 
school  should  be  established  at  once.  It  is  ob- 
vious that  new  buildings  are  needed  for  this  pur- 
pose, and  also  to  meet  the  increase  and  shifting  of 
population.  The  establishment  of  a  parental  truant 
school  has  also  been  directed  by  act  of  the  Legis- 
lature. These  buildings  should  be  constructed 
with  a  view  to  economy,  durability,  and  hygienic 
considerations,  rather  than  architectural  adorn- 
ment; and  a  part  of  the  cost  should  be  defrayed 
by  the  sale  of  several  school-houses,  which  are 
now  no  longer  needed. 

architect's    department. 

In  connection  with  the  building  operations  of 
the  city  I  would  suggest  a  reconstruction  of  the 
Architect's  Department.  The  present  system  costs, 
as  near  as  I  can  ascertain,  more  than  double 
what  private  owners  would  pay  for  similar  ser- 
vices,  '.nd  prevent  the  ci,/  L.  ^™g  the 
benefit  of  progress  and  competition  in  design.    I 


recommend  an  early  consideration  by  the  City 
Council  of  the  details  of  this  much  needed 


The  building  laws  stand  in  need  of  revision. 
I  commend  to  your  attention  the  report  made  to 
the  last  city  government  by  the  commissioners 
appointed  for  that  purpose.  The  revision  proposed 
by  them  contains  many  sections  of  great  value, 
but  can,  I  believe,  be  still  further  improved.  I 
shall  take  an  early  opportunity  of  submitting  to 
the  City  Council  a  redraft  of  the  proposed  law. 


A  special  reform  which  I  think  should  be 
inaugurated  at  once  is  a  change  in  the  fiscal 
year.  A  month  or  six  weeks  ought  to  be  suffi- 
cient to  enable  the  departments  to  close  up  the 
business  of  the  financial  year,  and  to  get  ready 
for  the  new  one.  The  present  system  holds  out  ^ 
the  temptation  to  the  out-going  city  government  to 
unload  its  financial  difficulties  upon  the  next,  and 
the  new  city  government  has  consequently  for 
the  first  four  months  to  bear  the  burden  of  the 
mistakes  of  the  preceding  year,  and  usually  to 
make  up  large  deficiencies  in  appropriations  which 
should  have  been  taken  out  of  the  tax-levy  of  ^ 
the  previous  year.     I  believe  that  the  fiscal  year 


should  correspond  as  nearly  as  practicable  with 
the  calendar  year,  and  I  suggest  February  1  as 
an  available  date  for  that  purpose. 


Among  the  foregoing  suggestions  there  are 
three  which  require  action  by  the  City  Council 
alone;  namely,  the  change  in  the  fiscal  year,  the 
consolidation  of  the  various  street  departments, 
and  the  appointment  of  a  rapid  transit  commis- 

The  other  reforms  recommended,  namely,  the 
change  in  our  system  of  laying  out,  building,  and 
paying  for  street  improvements,  the  various 
changes  in  our  system  of  taxation,  and  the  ap- 
pointment of  a  commission  to  consider  the  pos- 
sibilities of  the  Charles-river  basin,  all  require 
action  by  the  State  Legislature,  and  this  should 
be  based  on  the  request  of  the  city  government. 

I  have  confided  this  inaugural  message  to  the 
recommendation  of  certain  radical  reforms  in  our 
methods  of  taxation  and  of  conducting  public  im- 
provements, because  I  have  long  been  convinced 
that  changes  of  this  character  must  be  made  before 
the  citizens  of  Boston  can  hope  to  have  a  satis- 
factory and  progressive  municipal  administration 
without  an  increase  in  taxation. 

I  believe  that  public  opinion  is  very  generally  in 


fayor  of  tax  refonn  in  the  direction  here  suggested, 
as  indicated  by  the  fact  that  one  of  the  great 
political  parties  of  the  State  declared  in  its  plat- 
form of  1890  that  ^  the  time  has  come  when  cities 
and  towns  should  be  intrusted  with  larger  powers 
of  home  rule  in  matters  of  taxation  and  municipal 

It  has  been  characteristic  of  the  people  of 
this  Commonwealth  and  city  to  lead  the  way  in 
movements  of  progress  and  reform.  The  times 
are  ripe  for  well-considered  and  eflfective  im- 
provements in  municipal  administration;  and  I 
should,  I  believe,  misinterpret  the  sentiments  of 
my  fellow-citizens  if  I  did  not  assume  that  they 
wiU  give  a  hearty  and  popular  support  to  all 
earnest  efforts  to  prevent  Boston  from  falling 
behind  other  cities  in  this  and  foreign  countries 
in  the  progressive  development  of  the  methods 
of  municipal  government 



December  31,  1890. 
To  the  Mayor. 

Sir  :  —  In  answer  to  your  circular  letter  of  December  20,  1890, 

I  would  state  that  the  expenses  of  this  Department  for  the  financial 

year  1890-91  to  December    81,   1890,   have  been    $18,723.45, 

leaving  a  balance  of  $7,976.55,  which  will  be  sufiScient  for  the 

financial  year  ending  on  April  30,  1891. 

Herewith  please  find  statements  of  the  debt  and  Sinking-Funds 

of  the  City  of  Boston  and  County  of  Suffolk. 

Very  respectfully, 

James  H.  Dodge, 

City  Auditor. 


The  Cmr  and  Countt  Debt. 

Gross  funded  debt,  December  81,  1889        ....     951,185,741  09 
Add  funded  debt  issned  in  1890 5,462,000  00 

$56,647,741  09 
Dednct  fnnded  debt  paid  in  1890 1,207,880  08 

OroM  debt,  December  81,  1890 (55,440,8610 

Sinking-Fnnds,  December  81,  1889      .        .  #22,789,195  98 
Receipts  dnring  1890 2,775,892  44 

#25,564,588  87 
Payments  dnring  1890  ....      1,226,448  23 

#24,888,140  14 
Bonds  and  mortgages  the  payments  of  which 

are  pledged  to  the  payment  of  debt  .                  48,728  94 
Total  redemption  means,  December  81, 1890                .  24,886,864   08 

Net  debt,  December  81,  1890 #81,058,496  98 



Gross  debt,  December  81,  1890 955,440,861  06 

Gross  debt,  December  31,  1889 51,185,741  09 

Increase $4,254,619  97 

Net  debt,  December  31,  1890 $81,058,496  98 

Net  debt,  December  31,  1889 28,321,788  06 

Increase $2,731,708  92 

City  debt,  indnding  balance  of  debts  assumed  by  acts  of 


County  debt  ......... 

Cochituate  Water  debt 

Mystic  Water  debt 

$85,226,087  08 

8,229,000  00 

16,246,278  98 

789,000  00 

$55,440,861  06 

At  the  present  time  the  assumed  debts  remaining  unpaid  are,  on  account 

Charlestown  City 
Mystic  Water  . 



•                 •                 • 

$502,000  00, 

bearing  6% 

$888,000  00 

"       6% 

108,000  00 

"       6% 

18,000  00 

"       4% 

240,000  00 

"       3i% 

85,000  00 

789.000  00 

"       3J% 

West  Rozbury 

$1,241,000  00 
25,000  00 

$1,266,000  00 



Statement  showing  borrowing  limit,  December  81,  1890 

Total  Debt,  City  and  County,  December  31,  1890 
Less  Special  Loans  (outside 

of  limit)      .        .        .   $5,261,000  00 
Cochituate  Water  debt  .   16,246,278  98 
Mystic  Water  debt         .        789,000  00 
County    debt     (outside 
of  limit)     .        .        .      2,400,000  00 

Amount  carried  forward^ 

$55,440,861  06 




24,646,278  98 
$30,794,087  08 




Amount  brought  forward,  $80,794,087  08 

Sinldng-Fands 924,838,140  14 

Less  Cochitaate  Water  Sink- 

ing-Fund        .        .        .   95,854,530  21 
Mystic     Water    Sinking- 

Fund      ....         719,722  81 
Public  Park  Conatmction 

Sinking-Fond         .        .         287,776  16 
Special    Loans     Sinking- 
Fond      ....         187,646  49 
Coonty  Coort-Hoose  Sink- 
ing-Fond      .        .        .  81,957  25 

7,081,682  92 

: 17,256,507  22 

Net  debt,  excluding  debts  ootside  of  limit     ....   #18,537,579  86 

Two  per  cent,  on  $733,786,943,  average  raloation  for  flye 

years,  less  abatements $14,674,738  86 

Debt  aa  above 13,537,579  86 

Right  to  borrow,  under  Chap.  178,  Acts  of  1885,  December 
31,  1890 $1,137,159  00 

Gross  Debt  akd  Debt  Requirehents. 

Debt  upon 

which  Intereflt 

was  paid. 




Paid  from 
Taxet  other 
than  Water. 


from  Water 



from  Taxes 

other  than 






1878-70    .  .  . 
187»-80    .  .  . 
1880-81    .  .  . 
1881-82     .  .  . 
1882-88    .  .  . 
1883-84    .  .  . 
1884-86    .  .   . 
1886-86    .  .  . 
1886-87    .  .  . 
1887-88     •  .  . 

ItKK^ov      •    •    • 

1860^00     .  .  . 

.     $42,860,816  28 
42,080,125  86 
40,040,882  18 
40,070,812  04 
41,184,368  12 
48,186,660  07 
42,062,180  02 

.       48,628,822  (M 
46,700,062  72 
48,008,808  46 
40,020,476  26 
68,080,006  22 

$1,666,764  66 
1,670447  66 
1,686,640  01 
1,627,144  06 
1,402,877  10 
1,638,072  82 
1,620,000  10 
1,511^8  41 
1,628,074  78 
1,601,600  28 
1,608,862  68 
1,642,276  76 

$685,406  70 
706,002  08 
684,621  62 
661,410  76 
602,208  80 
608,078  41 
717,618  07 
780.688  78 
788,740  26 
7n,007  06 
788,117  82 
802,227  88 

$664,008  00 
405,704  00 
608,666  00 
781,601  00 
720,160  00 
768,278  00 
780,408  00 
648,068  00 
626,006  00 
740,107  00 
808,080  00 
882,272  00 

$248,328  82 
267,706  80 
227,440  20 
278,804  04 

280,260  80 
186,822  11 
860,083  68 
260,088  06 
270,490  01 
826,860  10 



Loans  Authorized  bt  Statute  Outside  of  Debt  Limit. 





Date  of 








Public  Park  Goiutractloii  .  .  . 

Suffolk  County  Court-Houie   . 

Harvard  Bridge 

Public  Park  Lands 

Sewer,  Tremont  itreet   .... 

Stony  Brook  ImproTement  •■ . 

Public  Park  Landi 

New  library  Building    .... 

W.  Cheater  Park  Eztenrion  •  • 

CongreM    street    and     Oliver 
■treet  Extension 

Improved  Sewerage 

Public  Parks,  Oharlestown  .  . 


1 2,500,000 










June  21,1886, 
March  21, 1887, 
May    18,1887, 
May    26,1887, 
June  11,1887, 
June  16,1887, 
May    23,1888, 
March  1, 1889, 
AprU  12, 1889, 

April  26, 1889, 
May     9, 1889, 

May  5  and 

June  28,1890, 







Total • 



>  In  addition  to  the  cost  of  the  land. 



Loans  of  1890. 

Date  of  Order. 

Jan.  A,  Feb.  10, 
aod  Dec.  31, 

Mar.  18,1889. 

Not.  18,1880. 

Not.  18,1880. 

Jan.  8, 1800 . 

Jan.  8, 1800 . 

Deo.  M,  1880, 
and  Jan.  24, 

Feb.  11,1800. 

Mar.  1, 1800 . 

Mar.  10,1800. 

Oct.  18, 1800 . 

Oet.  18, 1800 . 

Oet.  17, 1800 . 

Debt  iMned  since  Jan.  1, 1800. 

PnbUo  Park  Constmotion  . 
New  library  Bnlldlng  .  .  • 
Additional  Supply  of  Water 
Bxtenaion  of  Maine,  ete.   .  . 

Hlffh  Serrlee 

Suffolk  Oonnty  Conrt-Honee 


Fublio  Park  Lands  .... 



Bxtenaion  of  Maine,  eto.  . 
Public  Parka,  Oharleatown 

Total $5,482,000  00 

Included  In 
Debt  Limit. 

$1,087,000  00 

674,000  00 

870,000  00 

$2,281,000  00 

Outside  of 
Debt  Limit. 

$600,000  00 
811,000  00 
800,000  00 
20,000  00 
100,000  00 
800,000  00 

800,000  00 
100,000  00 

260,000  00 
200,000  00 

$8,181,000  00 


Janttart  1,  1891. 
To  the  Mayor. 

Sm: — The  assesBmentB  committed  to  the  Collector  for  the 
financial  year  beginning  May  1,  1890,  not  including  Cochitaate 
and  Mystic  water  rates;  amount  to  $12,220,946.72.  Of  this 
amount  there  has  been  to  December  31,  1890,  $10,120,429.57  col- 
lected; $85,505.36  abated,  and  $2,015,011.79  remains  uncol- 
lected. This  includes  the  State,  City,  and  County  taxes,  $10,- 
996,923.15,  of  which  $8,980,135.32  has  been  paid,  $70,698.81 


abated;  leaving  $1,946,089.02  unpaid,  and  the  Bank  tax,  $891,- 
812.80,  all  of  which  has  been  paid. 

The  Cochituate  water  rates,  assessed  on  the  first  of  January, 
1890,  and  additional  and  meter  rates  assessed  during  the  year, 
amount  to  $1,476,287.38.  There  has  been  paid  of  these  assess- 
ments $1,228,627.01;  abated,  $79,015.061 ;  eaving  $168,645.31 
uncollected.  The  Mystic  water  rates  for  the  same  time  stand  as 
follows :  Assessed,  $336,904.76 ;  paid,  $307,651.61 ;  abated  $28,- 
532.94;  unpaid,  $720.21. 

The  total  receipts  in  money  from  all  sources  from  May  1,  1890, 
to  December  31, 1890,  both  inclusive,  amount  to  $18,325,109.38. 

A  general  Bummnry  of  the  ftccounts  shows  that  the  balance 
of  bills  and  assessments  ontstanding  January  1,  1890, 
was $2,610,821  66 

The  assessments  from  January  1,  1890,  to  December  81, 

1890 14,208,989  15 

Cash  deposits  from  January  1,  1890,  to  December  81,  1890,         2,499,090  43. 

Total  amount  charged  to  Collector $19,318,901  24 

The  Collector  is  credited  with  abatements  .       $612,728  62 

Cash  paid  City  Treasurer     ....    15,958,060  89 

16,565,784  01 

Balance  uncollected $2,758,117  28 

The  amount  appropriated  for  the  expenses  of  the  department 
was  $71,410.  The  amount  expended  to  date,  $55,652.84,  leav- 
ing a  balance  unexpended  of  $15,757.16,  sufficient  to  continue 
the  work  to  the  dose  of  the  financial  year. 


Jambs  W.  Rickeb, 

City  CoUectar. 




Cut  Treasxtber's  Opmcb,  January  1,  1891. 
To  tJie  Mayor. 

Sm:  —  The  undersigned  herewith  presents  a  statement,  in 
compliance  with  youi*  request  of  December  20,  1890,  of  the 
receipts  and  payments  of  the  City  of  Boston  and  County  of 
Suffolk  for  the  year  1890,  beginning  January  1,  1890,  end- 
ing December  81,  1890,  showing  the  balance  of  money  remaining 
in  the  Treasury  December  31,  1890,  and  where  deposited,  and 
of  the  other  matters  referred  to  in  your  communication. 



Alfred  T.  Turner, 

City  Treasurer. 

For  the  Tear  1890, 

Oiuih 'RftlAnftA.  tTannArv  1. 1800  .  ..... 

$4,400,651  82 


From  City  Ck>Ue«tor  :>~ 

On  acooant  of  Olty  of  Boston  .  . 

$16,700,630  88 

On  aoeonnt  of  County  of  Suffolk . 

219,282  37 

$16,979,802  70 

Temporary  Loans : — 

A  ntlH nation  of  Taxes.  1890.  &M  ■  .  • 

1,500,000  00 

^    City  Loans :~ 

Miscellaneous  Purposes,  8ij( 

$1,037,000  00 

PubUo  Park  Lands,  S|)( 

000,000  00 

Public  Park  Construction,  4i(   .  .  .  . 

600,000  00 

New  Public  Library  Building,  Dart- 
month  street.  44  ..••■.... 

811,000  00 

Miscellaneous  Purposes,  4^ 

1,244,000  00 

Public  Park,  Charleetown  District,  4)(, 

200,000  00 

8,892,000  00 

Carried  forward 

$21,871,802  70 

$4,400,051  82 



Mrouoht  fbrtDard  .....a.^.a 

$21,871,802  70 

$4,400,061  81 

Coehitnate  Waler  Loans :  — 

TTIffli  R<irvlA«.  SM 

$200,000  00 
20,000  00 


Szteoslon  of  Mains,  efee.»Sj(j(.  .  .  •  •  • 

Sztenaion  of  Mains,  ete.,  4^ 

250,000  00 

Additional  Supply  of  Water,  4)t .  .  .  . 

800,000  00 

770,000  00 

Snflolk  Coanty  Loans :  — 

Suffolk  County  Gonrt-Honse.  8M  •  .  •  • 

800,000  00 

Premium  on  Loans  negotiated :  — 

Oitv  TiOans   ..■..■■■■..... 

$06,006  04 
87,700  00 

Oochitnate  Water  Loans 

OonntT  TiOans  ..«>■...>■..• 

9,408  00 

142,719  04 

Public  Library  Tmst  Fnnds :  — 

Beauest  of  Josenh  SchoUleld  •  •  •  •  • 

11,780  07 

Board  of  Commissioners    of    Sinking- 
Fnnds:  — 


Vot  navment  of  debt    .......a. 

$1,190,880  08 
909  84 

For  cost  of  Redemption  of  Sterling  Debt, 

110  41 

1,101,400  28 

Pay.Eoll  Tailings  from  Paymasters,  Settle- 
mento  with  Cashier,  parties  unpaid 
on;  — 

City  account    »....*■*••. 

$80,110  70 
712  71 

Conntv  account  ..aa*..... 

80,820  41 

107  00 

120,270  79 

Tax  Titles,    received    from  owners  to 
secure  estates  sold  for  taxes 

Interest  on  Bank  Deposits  ,,,»,»,, 

24,448,082  49 

$28,848,734  31 


On  account  of  the  City  of  Boston :— 

On  Mayor's  Drafto :  — 

General  Drafts  • 

*$0,878,812  02 

Oarrisd  fonDord 

$0,078,821  02 

*  Amount  of  General  Drafts  through  City  Auditor's  Office, 

from  Jan.  1, 1800 ■«••••••.•••••    $6,686,100  17 

Less :  Amount  not  paid  Dec.  81, 1800 8,482  81 

Add :  Outstanding  Dec.  81, 1880,  paid 

$6,077,688  86 
687  66 

$6,678,821  02 



Brought  forward 


BpeoUl  Drftfts 

Commonwealth  of  MMsaehosetU  :— 

Btate  Tax,  1890 

National  Bank  Tazai,  1800   .  .  . 

Liquor  Lleenae  Bevenne,  1880-00 
<«  •!  fi  180<^1 

Armory  Loan  Afloeaament .  .  .  . 

Board   of    Commiiaionera    of    Blnking- 
Fnnda: — 
Serenue  payable  nnder  authority   of 
Ordinance  on  Finance 

Premium  on  Loans  negotiated 

Pay-Boll  Tallinge,  paymenta  by  Caahler 
to  parties  not  paid  by  Paymaatera  .  •  . 

Pnblic  Library  Tmet  Fnndi 

Police  Charitable  Fnnd 

Bowdoin  (Dorcheiter)  School  Fond .  . 
Mount  Hope  Cemetery  Tmat  Fond  .  . 
City  Debt  due  prior  to  May  1, 1800 .  .  . 

Old  Chdms,  Mayor**  Drafto 

Sewer  Aiaeaamettta  refunded 

Protested  Sewer  Aaseaaments  refunded 
Taxes,  etc.,  refunded  ...••.... 
Oochituate  Water  Rates  refunded  .  .  • 
Tuition  of  Non-Residents  refunded  .  • 
Carried  forwani 

0,678,891  OS 

•0,028,086  8s 

6,218,416  21 

$646,767  60 

684,070  40 

827  16 

262,826  00 

720  76 

28,066  27 

$48,284  70 
108,108  74 

1 10,844,898  66 

1,612,686  07 

241,888  68 

20,806  14 

21,800  00 

0,600  00 

4,600  00 

8,000  00 

8,000  00 

620  27 

8,065  84 

407  44 

042  88 

1,281  08 

119  40 

$21,777,720  25 

*Pay-Roll  Drafts  through  City  Auditor's  Office,  from  Jan.  1, 
Less:Not'paldi>ec'8i,'l»o'  '•!!!'.!  '.  *.!!!'.!  *.  '.  ! 

$6,088,528  80 
88,807  87 

Add :  Outstanding  Dec  81, 1800 

$6,800,716  02 
28,870  81 

$6,023,086  88 

tlndudes  City  Debt  paid 

Temporary  Loans « 

Mystic  Water  Debt 

Cost  of  redemption  of  Sterling  Debt 

$1,088,880  08 

1,500,000  00 

100,000  00 

069  84 

$2,680,840  87 

t.Inoludes  Interest  paid :  — 

On  City  Debt 

Coehltaate  Water  Debt 
Mystic  Water  Debt .  . 

$1,570,168  28 

767,359  88 

42,207  50 

$2,870,725  16 



Stouaht  fonoard  ••••..•••• 

$21,777,729  25 

174  75 

127  19 

98  60 

1,584  16 

6  91 

6  88 

Myitte  Water  Rates  refanded  ..••.. 

Reeldae  Tax  Balee,  etc •.. 

Tax  Titles 

Protested  Twees  refnnd<^  ...*.•.• 

Psyments    on    acoonnt    of  Ooimty  of 
Baflolk:  — 

$21,779,522  74 

Allowed  by  Auditor  of  Ooimty  of  Suf- 

•660,140  55 
1 469,211  75 

Mayor's  Speelal  DrafU 

Pay.RoUTaiUnss,  paymento  by  Cashier 
to  parties  not  psld  by  Paymasters    . 

841  94 

Ck>imty  Fines  to  Complainant .  •  t  .  • 

286  50 

Judgment  for  Costs  of  Bait,  etc 

28  72 

County  Fines,  Award  for  Neglect  to  Sup- 
port Wife  and  Children  

20  00 

Old  Claims,  Allowances  of  Auditor .  . 

6  75 

Bounty  for  Destruction  of  Seals .... 


1,129,984  21 

t  $22,909,506  96 

$4,400,651  82 

**    Beoeipts  on  account  of  City  of  Boston 

$28,418,729  41 

•«          "       •*       "    County  of  Suffolk 

1,029,858  08 

24,448,062  49 

$28,848,784  81 

Payments  on  account  of  City  of  Boston  • 

$21,779,522  74 
1,129,984  21 

"       "       "       **  County  of  Suffolk. 

22,909,606  95 

Cash  b^anAA.  TIac.  81, 1800 ,   . 

$5,989,227  86 


•  County  Requisitions  throng  County  Auditor's  Oflice  from  Jan.  1, 1890 
Less :  Amount  not  paid  Dec.  81, 1890 

.  $660,065  51 
427  80 

Add :  Outstanding  Deo.  81, 1880,  paid 

$659,688  21 
602  84 

•Includes  County  Debt  paid 

t  Includes  Interest  paid  on  County  Debt 

$660.140  55 

$17,000  00 
$105,217  88 



Balance  December  31, 1890,  as  per  preceding  statementa, 
as  follows :  — 

Atlantic  National  BazA 

AtlasNatlonal  Bank 

Blackstone  National  Bank 

Boston  National  Bank 

Broadway  National  Bank 

Banker  HIU  National  Bank 

Central  National  Bank 

Columbian  National  Bank 

Commercial  National  Bank 

Continental  National  Bank • 

Everett  National  Bank 

Fanenil  Hall  National  Bank 

First  National  Bank 

First  Ward  Natloaal  Bank 

Fourth  National  Bank 

Freeman's  National  Baak i 

Hamilton  National  Bank 

Lincoln  NatloB«l  Bank 

Manufacturers*  National  Bank 

Market  National  Bank 

M^faachnsetts  National  Bank 

Maverick  National  Bank 

Mechanics*  National  Bank 

Monument  National  Bank  .  .  .  j  ,  .  .  ,  .. 

Mount  Vernon  National  Bank 

National  Bank  of  the  Commonwealth   .  .  . 

National  Bank  of  North  America   .  .  .  .  < 

National  City  Bank 

National  Bagle  Bank , 

National  Exchange  Bank , 

National  Hide  and  Leather  Bank 

National  Market  Bank  of  Brighton     .... 

National  Rockland  Bank , 

National  Security  Bank 

National  Union  Bank 

Carried  forward 

J  •  »  • 

$100,864  80 
160,388  28 
100,364  M 
100,864  80 

60,180 16 
100,871  80 
»M),a71  28  * 
100,818  «7 

86,068  48 
100,868  01 

75,101  00 
100,264  80 

100,880  ai 
80,aja6  04 

100«8A6  68 

»»,2tl(6  68 

100,281  92 

T6/800  00 

76,184  93 

100,246  57 

100,238  ^  ', 

76,172  60 

60,162  74 

60,136  64 

60,162  08 

100,246  68 

100,246  58 

100,246  68 

100,225  00 

100,230  18 

200,460  82 

60,133  86 

76,197  27 

75,212  67 

100,218  60 

$3,162,823  48 



Brought  forward 

National  Webflter  Bank 

New  England  National  Bank 

North  National  Bank 

Old  Boston  National  Bank 

People*!  National  Bank 

Second  National  Bank 

Bhawmnt  National  Bank 

Third  National  Bank    • 

Traden  National  Bank 

Tremont  National  Bank 

Globe  National  Bank 

Howard  National  Bank 

National  Bank  of  Bedemption 

National  Bank  of  the  Republic 

National  Revere  Bank 

National  Seenrlty  Bank,  Pay-roll  Tailings  account    .  . 

Caah  deposited  In  Banks 

Cash  and  Cash  Tonchers  In  office,  Including  payments 
made  on  January,  1891,  draft • 

$3,102,823  43  \ 
100,230  11  ' 

.  100,164  38 
100,280  IS 
1004280  14 
76,200  20 
200,400  28 
100,280  18 
100,268  04 
60,140  00 
100,216  58 

$4,200,104  61 

263,062  24 
304,768  86 
278,101  68 
616,706  07 
191,410  86 
7,977  69 

$6,866,111  88 
88,116  97 

$6,939,227  86 








JANUARY    4,    1892. 


Rockwell  and   Churchill,   City  Printers. 

I  892  . 









JANUARY    4,    1892. 

Rockwell  and  Churchill,  City  Pruttbrs. 

I  892. 


In  Boabd  of  Aldebmen, 

January  4,  1892. 

Ordered^  That  His  Honor  the  Mayor  be  requested  to  ^    i 

furnish   the   City   Council   with  a  copy  of  his  inaugural 
address  for  publication. 

Passed.     Sent  down  for  concurrence.     January  4,  came 

up  concurred. 

A  true  copy. 


John  M.  Galyin, 

OUy  OlerJc. 


Gentlemen  of  the   City   Council  of  1892: 

The  chief  ftmction  of  the  City  Council,  as  the 
legislative  branch  of  the  City  Government,  is  to 
determine  the  amounts  of  money  which  the  exec- 
utive departments  shall  be  authorized  to  ^expend 
during  the  year,  and  the  manner  in  which  the 
money  shall  be  raised.  The  exact  financial  con- 
dition of  the  city  should,  therefore,  be  carefully 
considered  at  the   outset  of  your  deliberations. 


Tables  hereto  appended  give  the  history  of  our 
city  debt  since  1822,  and  show  an  increase  at 
times  and  in  the  aggregate  wholly  disproportionate 
to  the  benefits  obtained,  viewed  from  the  stand- 
point of  to-day. 

"While  few  will  criticise  the  use  of  the  city's 
credit  to  procure  money  for  systematic  and  well- 
considered  improvements,  —  such,  for  example,  as 
our  Park,  Improved  Sewerage,  and  Water  sys- 
tems,  —  no  one  who  looks  carefully  over  the  list 


of  objects  for  which  the  city  has  issued  loans 
since  its  incorporation  in  1822,  aggregating  over 
$100,000,000,  can  escape  the  conclusion  that  a 
large  part  of  the  money  has  been  borrowed  im- 
providently  and  expended  injudiciously.  These 
loans  and  the  resulting  present  indebtedness  of 
the  city  are  not  only  excessive  in  respect  to  the 
number  of  citizens  and  their  aggregate  wealth, 
but  seem  also  out  of  proportion  to  the  value,  to 
the  present  and  succeeding  generations,  of  the 
improvements  in  which  the  money  has  been  sunk. 

Eealizing  the  unportance  of  these  consider- 
ations, the  City  Government  of  1891  borrowed 
only  $2,716,500,  and  the  net  debt  was  reduced 
during  the  year  by  $350,138.64,  or  from  $31,- 
053,496.98  to  $30,703,358.34. 

The  policy  of  permitting  no  increase  in  the 
net  city  debt,  and  of  borrowing  nothing  for  cm- 
rent  expenses,  thus  inaugurated,  was  deliberately 
made  the  platform  of  the  successful  party  at  the 
last  municipal  election ;  and  the  verdict  of  the 
citizens  on  that  occasion  cannot  be  regarded 
otherwise  than  as  an  emphatic  demand  on  their 
part  for  a  continuance  of   that  policy. 

Owing  to  the  change  in  the  fiscal  year,  which 
hereafter  will  begin  on  February  1,  and  to  the 
law  of  1891  (chapter  93),  which  permits  the  city 


to  issue  loans  at  any  time  for  all  the  money 
which  it  proposes  to  borrow  within  the  debt  limit 
during  the  year,  you  will  be  called  upon  at  once 
to  consider  not  only  the  distribution  of  the  cit/s 
income  among  the  several  departments  in  such 
manner  as  to  maintain  their  present  standard  of 
eflSiciency,  but  also  to  devise  the  ways  and  means 
by  which  all  really  necessary  public  improve- 
ments can  be  undertaken  without  increasing 
the  net  debt  of  the  city  beyond  the  amount 
at  which  it  stood  on  Jan.  1,  1891.  The  subject 
should  be  handled  not  merely  from  the  stand- 
point of  this  year's  financial  possibilities,  but  as 
an  annually  recurring  proT>lem,  not  to  be  solved 
in  any  one  year  at  the  expense  of  the  finances 
of  the  next. 

I  have  prepared  with  some  care  a  table  showing 
the  amount  expended  on  special  appropriations 
for  what  may  be  termed  permanent*  improvements 
during  the  past  five  years,  the  amount  estimated 
by  the  principal  departments  and  myself  as  proper 
to  be  raised  for  such  purposes  during  the  next 
five  years,  the  unexpended  balances  of  special 
appropriations  now  on  hand,  and  an  estimate  of 
the  fresh  money  needed  for  these  purposes  during 
the  year  1892. 



SaSiSSIS&^SSSSE;    3SS83E  i  :S 





~r"sr=!iS3sss3  itaS'si  -ST 










SJSSS8"S52!3  =  3    OSSSSSS 





The  total  amount  which  it  will  be  reasonably 
necessary  to  expend  for  permanent  improvements 
during  the  next  five  years  I  estimate  at  $21,181,- 
532.07,  an  amount  larger  by  about  $3,861,970.85 
than  the  expenditures  during  the  five  years  just 
passed.  Of  this  sum  the  unexpended  balances  now 
on  hand  amount  to  $3,101,532.07,  including  $187,500 
(see  Appendix  B),  which  is  unavailable  for  the  pur- 
poses to  which  it  is  now  appropriated,  and  which 
should  be  transferred  to  other  and  more  desirable 
objects.  Applying  this  $187,500  as  suggested,  the 
amount  of  fresh  money  to  be  provided  during  the 
next  five  years  is  $17,892,500  ;  while  our  resources 
will  be  something  as  follows:  — 

Amount  that  can  be  borrowed  without  increas- 
ing the  net  debt  of  the  city  above  $31,- 
058,496.98  (the  amount  at  which  it  stood 
Dec.   31,   1890) $14,700,000 

Sales  of  city  property,  including  the  Public 
Library  site  on  Boylston  street,  school-houses 
to  be  surrendered,  etc.  •        •        .         .        .  2,150,000 

From  the  tax  levy 1,000,000 


This  calculation  indicates  that  there  should  be 
little  difficulty  in  providing  all  the  money  rea- 
sonably required  for  ordinary  improvements  during 


the  next  five  years  without  an  increase  in  the 
net  debt  of  the  city.  Moneys  required  under 
the  new  street-construction  law  (St.  1891,  ch. 
323)  are  excluded  from  this  computation,  as 
these  loans  are  to  be  repaid  by  the  abutters  and 
not  by  the  taxpayers  generally,  and  are  to  be 
secured  by  a  first  lien  upon  the  estates  bene- 
fited; and  no  account  has  been  taken  of  cer- 
tain extensive  street  widenings  which  should  be 
undertaken  in  the  immediate  future,  but  the  cost 
of  which  should  be  defrayed  by  the  adoption  of 
new  financial  methods  which  will  be  explained 
more  in  detail  hereafter. 

The  desired  result  can  be  realized,  however,  only 
by  restricting  the  use  of  the  city's  credit  to  such 
improvements  as  are  of  admitted  necessity,  by 
borrowing  no  more  in  any  one  year  than  can  be 
expended  in  the  same,  by  practising  a  rigid  and 
business-like  economy  in  all  the  departments  of 
the  City  Government,  and  by  efiecting  certain 
changes  and  reforms  in  the  financial  policy  of  the 


Passing  to  the  application  of  those  principles  to 
the  immediate  finances  of  the  current  year,  I  esti- 
mate that  we   can  secure  for  permanent  improve- 



ments    in    1892,   without    an   increase  in  the  net 
debt,  $3,337,500,  as  follows  :  — 

Transfers,  as  above $187,500  00 

Sales  of  city  property       .....  150,000  00 
Amount    that    can    be    borrowed   without   in- 
creasing the  net  debt  above  $31,053,496.98,  3,000,000  00 

Total $3,337,500  00 

This  sum  exceeds  by  $196,500  the  amount  which 
it  seems  to  me  necessary  to  raise  during  the  year, 
according  to  the  table  already  given. 

These  estimates  are  presented  merely  as  sug- 
gestions of  what  is  possible  this  year  in  the 
way  of  permanent  improvements  without ,  increas- 
ing  the  city  debt.  They  embrace  all  those  im- 
provements demandmg  in  my  judgment  immediate 
attention,  and  contemplate  an  appropriation  of 
$3,337,500,  which,  added  to  the  $3,101,532.07  avail- 
able  from  unexpended  balances,  will  make  a  total 
fund  of  $6,242,532.07  for  expenditure  on  permanent 
improvements  during  the  year.  This  sum  is 
certainly  all  that  can  be  profitably  spent  in  the 
course  of  a  single  year;  the  expenditures  on 
special  appropriations  having  been  $3,304,530.99 
in  1890  and  $5,029,607.32  in  1891. 

Authority  now  exists    to   borrow    a   considera^ 




ble  part  of  the  f3,000,000  which  it  seems  to 
me  should  be  raised  during  the  year,  as  fol- 
lows : — 

SIVE OF  LOANS  UNDER  ST.   1891,  CH.  828). 

Datb  ov  Obdeb. 

Nov.  18, 1880' •  .  . 
Mmj  20,  1801  .  .  . 
Cot.  26,  1891  .  .  . 
Oet.  24,  1801  .  .  . 
Deo.  10,  1891 .  .  . 
Dee.  24, 1891  .  .  . 
Deo.  6,  1891  •  .  . 
Jan.  2,  1802  .  .  . 


Objbgt  of  LoAjr. 

Coohltaate  Water,  Additional  Supply, 



Pablic  Library 

Commonwealth  Avenue 

Dorcbeater  Avenue 

L-8treet  Bridge 

City  Hospital 






Nbbdxd  iir 

1892  IN  AD- 
dition to 
ON  Hand 

January  1. 




That  is  to  say,  $1,461,000  of  the  $3,000,000 
can  be  issued  by  executive  order  without  further 
action  of  the  City  Council.  To  issue  the  re- 
maining $1,539,000  will  require  the  action  of  the 
City  CounciL  I  would  suggest  the  passage  of 
orders  authorizing  the  issue  of  new  loans  as  fol- 
lows : — 





Cocbitnate  Water— Eztenaion  of  Mains 

Suffolk  County  Coart-Honse 

Bchool-hotues  and  Sites 

Public  Forum 

Improved  Sewerage 

Street  Department,  Paving  Dlvlaion. 
Alleton-etreet  Bridge 


Amount  to  be 

Amount  to  be 
iMued  in  1892.. 

^250,000  00 

$190,000  00 

248,210  09 

150,000  00 

600,000  00 

479,000  OQ. 

100,000  00 

100,000  00 

250,000  00 

160,000  00! 

415,000  00 

415,000  00 

65,000  00 

65,000  00 

$1,818,216  09 

$1,539,000  00. 

These  orders  should  be  passed  at  once,  if  at 
all,  in  order  that  all  the  loans  for  the  year  may 
be  issued  at  one  time  and  in  one  sum.  The  best 
price  will  thus  be  realized,  and  the  departments 
will  be  enabled  to  undertake  the  work  pro- 
vided for  without  delay. 

The  borrowing  capacity  of  the  city  under  the 
debt-limit  laws  is  now  |5,208,152  less  $972,500 
authorized  but  not  issued;  that  portion  of  the 
$1,539,000  to  be  authorized  this  year  which  will 
come  within  the  debt  limit  is  $1,199,000;  and 
the  city  will  have  left  a  borrowing  capacity  of 
$3,036,652  to  be  drawn  against  only  in  case  of 
some  unforeseen  emergency. 


Whatever  justification  might  have  been   set  up 


in  the  years  immediately  succeeding  the  passage 
of  the  law  limiting  our  taxes  for  municipal  pur- 
poses to  $9  on  the  thousand  for  a  practice  to 
which  $1,333,4S9.30  of  our  present  funded  debt 
is  due,  there  would  seem  to-day  to  be  no  reason 
for  its  continuance.  The  present  operation  of 
the  law  not  only  brings  in  enough  revenue  for 
the  current  expenses  of  the  City  Government, 
economically  administered,  but  should  yield  some- 
thing in   addition. 


The  streets  were  watered  in  1891,  partly  by 
contractors  paid  by  the  householders  directly, 
and  partly  by  the  Street  Department.  This  com- 
bination seemed  to  give  general  satisfaction,  ex- 
cept to  those  citizens  who  wish  to  shift  the 
expense  of  laying  the  dust  in  front  of  their 
premises  over  to  the  general  public;  and  is,  so 
far  as  I  can  foresee,  the  system  most  likely  to 
satisfy  the  people  at  large  during  the  coming 

To  attempt  to  defray  the  entire  cost  of  water- 
ing the  streets  out  of  the  tax  levy  would  be  a 
financial  task  of  great  difficulty  at  the  outset; 
and  the  embarrassment  would  increase  from  year 
to    year  owing    to  the    clamor  for  extensions  of 


the  system,  until  finally  we  should  find  ourselves 
burdened  with  the  obligation  to  water  every 
street  within  the  city  limits  at  an  annual  expen- 
diture of  half  a  million  dollars.  No  such  in- 
crease in  expenditures  will  be  possible  upon  the 
present  basis  of  taxation  without  a  relapse  to 
the  practice  of  borrowing  money  for  current  ex- 

Moreover,  the  main  benefit  of  street  watering 
enures  to  the  individual  householder ;  and  it  is 
therefore  more  just  and  proper  that  he,  as  the 
person  chiefly  interested,  should  pay  the  whole, 
or  at  least  a  large  part,  of  the  cost  of  water- 
ing the  street  in  front  of  his  house  than  that 
the  entire  expense  should  fall  upon  the  citizens 
at  large.  One  great  error  in  our  municipal 
financiering  has  been  that  the  cost  of  services 
which  in  other  large  cities  are  paid  for  by  the 
persons  directly  benefited  has  in  Boston  been 
defrayed  out  of  the  tax  levy,  thus  shifting  upon 
the  community  the  burden  which  properly  belongs 
to  the  individual.  In  my  judgment  no  further 
step  should  be  taken  in  this  direction,  and  it 
would  seem,  both  on  principle  and  as  a  matter 
of  practical  finance,  that  if  the  Superintendent  of 
Streets  is  to  water  the  streets  and  charge  the 
expense  to  the  appropriation  for  his  department, 


the  department  should  be  reimbursed  by  assessing 
the  whole  or  a  part  of  the  cost  upon  the  estates 
benefited,  as  provided  by  the  new  street-water- 
ing law  (St  1891,  eh.  179).  If  it  should  be 
found  impracticable  to  devise  an  equitable  system 
of  assessments  under  the  provisions  of  this  law, 
and  suitable  amendments  cannot  be  procured,  the 
ordinance  recently  passed  by  the  City  Council 
(which  became  a  law  while  I  was  prevented  by 
illness  from  giving  the  matter  due  consideration) 
should  be  repealed  and  the  Superintendent  of 
Streets  directed  to  continue  the  method  •  adopted 
this  year. 


At  the  beginning  of  the  year  1891  there  were 
thirty-eight  executive  departments  responsible  to 
the  Mayor.  Four  of  these — namely,  the  Depart- 
ments  of  Sewers,  Bridges,  Cambridge  Bridges, 
and  Sanitary  Police  —  were  consolidated  with  the 
Street  Department  early  in  the  year,  and  the 
Department  for  the  Inspection  of  "Wires  has  been 
placed  in  charge  of  the  Board  of  Fire  Com- 
missioners; making  the  nimiber  of  present  Execu- 
tive departments  thirty-three,  exclusive  of  the 
Mayor's  office.  The  Board  of  Ferry  Commis- 
sioners has   also  been   abolished  and  the  manage- 


ment  of  the  East  Boston  ferries  placed  in  charge 
of  a  single  superintendent. 

These  changes  have  met  with  the  undoubted 
approval  of  the  citizens,  and  the  process  of 
consolidation  should  be  continued.  The  execu- 
tive work  of  the  city  is  still  divided  among  too 
many  departments,  and  much  friction  and  work 
at  cross-purposes  is  the  result.  A  smaller  num- 
ber of  departments  will  tend  to  harmony  and 
cooperation  between  them,  to  a  concentration  of 
responsibility,  and  to  economy  in  estimates  and 

Many  of  the  thirty-three  departments  still  exist- 
ing were  estabUshed  under  statute  laws,  and  can- 
not be  altered  or  abolished  without  the  sanction 
of  the  Legislature.  There  are  some,  however, 
which  are  the  creation  of  the  City  Council,  and 
could  with  profit  to  the  city,  and  without  appli- 
cation to  the  General  Court,  be  abolished  by  the 
present  City  Government. 

The  "Water-Income  Department  is  of  recent 
creation.  Its  work  is  intimately  connected  with 
that  of  the  Collector's  office,  and  is  to  some 
extent  duplicated  thereby.  On  the  other  hand, 
the  successful  management  of  the  "Water-Supply 
system,  which  forms  a  very  considerable  part  of 
our    municipal    work,     depends    largely    upon    a 


thorough  and  economical  collection  of  the  water 
revenues.  I  am  satisfied  that  the  best  interests 
of  the  city  require  that  the  work  of  collecting 
the  Cochituate  and  Mystic  revenues  should  be 
placed  in  charge  of  the  Water  Board. 

The  Improved  Sewerage  works  are  now  being 
constructed  by  the  City  Engineer;  but  both  he 
and  the  Superintendent  of  Streets  are  of  the  opin- 
ion that  it  should  be  placed  in  charge  of  the  lat- 
ter, and  managed  in  connection  with  the  Sewer 
Division  of  the  Street  Department. 

The  office  of  City  Surveyor  was  separated  from 
that  of  City  Engineer  many  years  ago;  for  what 
reason  I  have  not  been  able  to  discover.  The 
work  of  the  department  is  done  partly  for  the  Su- 
perintendent of  Streets,  partly  for  the  Board  of 
Street  Commissioners,  and  occasionally  for  the 
Law  Department.  I  believe  that  better  results 
would  be  obtained  if  this  office  were  again  united 
with  that  of  the  City  Engineer. 

The  care  of  the  City  Hall  was  formerly  in  charge 
of  the  Superintendent  of  Public  Buildings,  but  was 
taken  away  from  him  some  years  ago  and  given 
to  the  City  Messenger.  I  am  informed  that  this 
change  has  increased  the  expense,  and  I  can  see 
no  reason  why  the  Superintendent  of  Public  Build- 
ings should  not  have  charge  of  the  City  Hall  as 



well  as  of  other  city  buildings,  I  recommend,  ac- 
cordingly, that  the  City  Hall  be  replaced  in  his 


The  keeping  of  the  general  city  records  is 
divided  by  the  State  laws  and  City  ordinances 
among  the  departments  of  City  Clerk,  City 
Registrar,  Board  of  Health,  and  Ancient  Records. 
There  is  a  duplication  in  the  collection  of  certain 
records  by  the  Board  of  Health  and  the  City 
Registrar.  The  records  of  births,  marriages,  and 
deaths  have  not  been  kept  to  the  satisfaction  of 
the  lawyers  and  other  persons  who  have  occasion 
to  consult  them;  and  there  is  a  very  general 
demand  for  a  complete  reorganization  of  the  work, 
and  for  the  compilation  of  an  extensive  system  of 
indices  similar  to  that  adopted  by  the  Suffolk 
Registry  of  Deeds. 

I  think  that,  eventually,  when  there  shall  be 
sufficient  space  provided  for  the  purpose  in  a 
new  City  Hall,  there  should  be  one  consolidated 
department  of  City  Records,  which  should  have 
charge  of  all  the  work  now  intrusted  to  the 
four  departments  named;  and  that  in  the  mean- 
time the  Department  of  Ancient  Records  should 
be  consolidated  with  the  office  of  City  Registrar 
and  placed  in   charge  of  some  person  competent 


to  undertake  the  work  of  classification  and  index- 
ing referred  to,  with  a  sufficient  annual  appro- 
priation to  enable  him  to  finish  this  particular 
work  within  the  next  few  years.  In  this  manner 
the  vital  statistics  of  the  city,  which  have  been 
neglected  for  two  centuries,  can  be  put  in  con- 
venient shape  for  reference. 

The  Legislature  should  also  be  requested  to 
abrogate  those  provisions  of  law  which  require 
the  City  Registrar  to  gather  statistics  concerning 
the  causes  of  death,  which  are  properly  facts 
for  the  Board  of  Health,  and  not  for  a  city 
record  office,  to   collect. 


It  is  an  anomaly  that  while  members  of  boards 
are  appointed  for  three  or  five  years,  the  principal 
executive  officers  of  the  city  are  subject  to 
annual  appointment.  The  chief  heads  of  depart- 
ments—  such  as  the  financial  officers  of  the  City 
Government,  the  Superintendent  of  Streets,  the 
City  Engineer,  and  possibly  some  others  —  should 
be  appointed  for  a  term  of  at  least  three  years. 


The  relations  between  the  citizens  and  the  Board 
of  Police   continue  to  be    unsatisfactory.    During 



the  past  year  I  have  been  in  almost  daily  receipt 
of  oral  or  written  communications  complaining  of 
one  thing  or  another  within  the  jurisdiction  of  the 
Board  of  Police.  The  complaints  are  generally  of 
violations  of  city  ordinances  relating  to  the  use 
of  streets. 

While  not  desiring  to  suggest  that  the  Board 
has  been  wilfully  negligent  of  its  duties  in  this 
behalf,  it  is  nevertheless  a  fact  that  these  com- 
plaints are  in  the  main  well  founded,  and  that 
the  Mayor,  who  to  the  popular  mind  is  respon- 
sible for  everything  that  goes  wrong,  has  no 
control  whatever  over  the  department  whose  duty 
it  is  to  enforce  these  ordinances.  No  one  is  ni 
fact  responsible  but  the  Board  of  Police  ;  and 
they  in  turn  are  responsible  to  no  one.  The  system 
is  radically  wrong,  and  is  becoming  more  and 
more  exasperating  to  the  citizens  from  year  to 

"While  recognizing  to  the  fullest  extent  the 
inadvisability  of  vesting  the  power  of  granting 
liquor  licenses  in  the  elective  officers  of  the  City 
Government  or  their  appointees,  I  am  neverthe- 
less convinced  that  it  will  be  practically  impos- 
sible to  keep  the  streets  of  the  city  any  cleaner 
than  they  are  at  present,  or  to  prevent  the  daily 
violations  of  the  ordinances  relating  to  their  use. 


until  the  control  of  the  police  force  of  the  city 
is  returned  to  the  municipal  authorities,  and  that 
force  made  one  of  the  regular  departments  of 
the  City  Government,  to  be  placed  in  charge  of 
some  person  directly  responsible  to  the  Mayor, 
and  through  him  to  the  people. 


TSo  one  having  occasion  to  investigate  our 
system  of  finances  or  to  seek  information  con- 
cerning the  management  of  any  of  the  depart- 
ments can  fail  to  reach  the  conclusion  that  the 
manner  of  keeping  the  books  has  been  extremely 
faulty.  The  Auditor's  report  is  made  up  on  one 
plan ;  the  annual  department  reports  have  been 
compiled  each  upon  a  different  plan,  and  all  dif- 
ferent from  that  of  the  City  Auditor ;  and  the 
department  estimates  again  have  been  made  up 
upon  a  theory  different  from  that  which  governs 
the  compilation  of  the  City  Auditor's  report  and 
from  that  of  the  annual  reports  of  the  departments 
themselves.  The  time  covered  by  these  three 
series  of  reports  has  also  been  different,  —  the 
estimates  and  the  Auditor's  report  being  for  the 
fiscal  year,  and  the  annual  department  reports  for 
the  calendar    year.      In  addition  to  this  lack  of 


harmony  and  system,  there  has  been,  in  some 
departments  at  least,  an  apparent  attempt  to 
conceal  the  facts  by  generalizing  and  mystifying 

This  condition  of  affairs  has  been  remedied  in 
great  part  by  the  change  in  the  fiscal  year  from 
May  to  February,  and  by  the  recent  ordinance 
providing  that  the  annual  department  reports 
shall  for  the  future  cover  the  fiscal  year  from 
February  to  February,  rather  than  the  calendar 
year,  as  heretofore.  In  this  way  all  three  series 
of  reports  —  the  estimates,  the  department  reports, 
and  the  Auditor's  report  at  the  close  of  the  fiscal 
year  —  will  cover  the  same  period  of  time. 

In  addition  to  these  reforms  effected  by  the 
City  Council  of  1891,  efforts  have  been  made  by 
executive  order  to  secure  a  more  intelligible  and 
uniform  system  of  bookkeeping  in  the  principal 
departments,  and  to  have  the  estimates  and  re- 
ports of  these  departments  made  up  in  such 
manner  as  to  disclose  the  facts  that  the  public 
desire  to  know,  and  more  in  conformity  with  the 
system  of  bookkeeping  adopted  in  the  Auditor's 
oflSce.  It  is  to  be  hoped  that  the  department 
and  other  reports  submitted  during  the  present 
year  will  show  the  effect  of  these   efforts. 



The  Architect's  oflSce  has  been  reorganized 
and  placed  in  competent  hands,  with  the  result 
that  the  expenses  of  the  department  from  May  1, 
1891,  to  Dec.  31,  1891,  have  been  $17,139.11, 
while  the  disbursements  for  construction  have 
been  $424,092.66.  In  other  words,  the  cost  of 
maintaining  the  oflBlce  since  its  reorganization 
last  May  has  been  four  per  cent,  of  the  ex- 
penditures for  construction,  as  against  ten  per 
cent,  for  the  period  between  May  1,  1889,  and 
May  1,  1891;  and  there  is  every  prospect  that 
the  percentage  for  the  next  twelve  months  will 
be  still  less. 


The  sale  of  an  estate  on  Federal  street  early 
in  the  year  for  a  sum  considerably  less  than  the 
assessed  value  of  the  land  induced  me  to  look 
into  the  results  of  the  practice  then  in  vogue  of 
selling  city  property  at  auction  without  an  upset 
price.  I  found  that  from  Jan.  1,  1887,  to  and 
including  the  date  of  this  sale  on  Federal  street, 
city  property  valued  at  $474,522.50  had  been 
sold  for  $346,435.83,  a  loss  of  $128,086.67  (or 
27   per   cent.)    on   the    assessed  valuation. 

It    did    not    seem    possible   to   account  for  this 



loss  of  27  per  cent,  by  reason  of  the  overvalu- 
ations above  referred  to,  and  I  found  it  to  be 
the  general  belief  that  city  property  did  not 
bring  what  it  should  when  sold  at  public  auc- 
tion. A  new  system  was  accordingly  adopted, 
and  all  city  property  sold  since  the  Federal- 
street  sale  has  been  put  up  for  public  competi- 
tion, but  not  at  auction.  Substantially  the  method 
followed  by  the  City  Treasurer  in  placing  bonds 
upon  the  market  has  been  followed;  and  it  has 
been  found  that  this  method  of  advertising  prop- 
erty, with  an  upset  price  stated  in  the  advertise- 
ment, produces  good  results,  all  three  of  the 
estates  sold  in  this  manner  having  brought  more 
than  the  assessed  valuation,  and  in  one  instance 
almost  double.  I  would  respectfully  renew  my 
recommendation  to  the  last  City  Council  that  an 
ordinance  be  passed  providing  that  all  sales  of 
city  property  should  be  conducted  in  this  manner. 

A    NEW    CITY    HAIiL. 

It  is  obvious  that  the  question  of  procuring 
enlarged  accommodations  for  the  city  departments 
cannot  be  postponed  much  longer.  I  assume 
that  the  citizens  do  not  wish  to  have  the  City 
Hall  removed  to  the  Public  Garden,  or  to  any 
of  the  numerous  sites  in  that  section  of  the  city 


which  have  been  suggested,  but  prefer  that  it 
should  remain  easy  of  access  to  the  business  and 
professional  community.  The  only  alternatives, 
then,  are  to  remodel  the  present  City  Hall  in 
connection  with  a  new  building  to  be  erected  on 
the  site  of  the  old  Court-House,  when  that  shall 
be  surrendered,  or  to  secure  a  site  in  the  im- 
mediate vicinity  of  the  City  Hall,  and  erect  an 
entirely  new  building  thereon. 

The  result  of  the  best  thought  that  I  have 
been  able  to  give  to  the  matter  is  that  to 
make  a  convenient  and  fire-proof  building  out 
of  the  present  City  Hall,  enlarged  as  suggested, 
would  cost  over  a  million  dollars;  that  when  com- 
pleted, although  there  would  probably  be  room 
enough  to  accommodate  the  present  needs  of  the 
city  departments,  there  would  be  little  space,  if 
any,  to  allow  for  their  growth;  and  that  the 
necessity  for  an  entirely  new  and  larger  building 
would  simply  be  postponed,  to  revive  after  the 
expiration  of  ten  or  twenty  years. 

In  company  with  the  City  Architect  I  have 
looked  over  all  the  property  in  the  vicinity  of  the 
present  City  Hall,  and  have  reached  the  conclu- 
sion that  by  far  the  most  available  site  for  the 
purpose  of  a  new  City  Hall  is  the  lot  bounded 
by    Beacon    street,    Somerset    street,    Ashburton 


place,  and  Bowdoin  street.  This  lot  contains 
about  90,000  feet,  and  would  allow  for  the  widen- 
ing of  the  four  streets  named,  and  leave  a  space 
for  the  erection  of  a  City  Hall  large  enough  to 
accommodate  the  present  and  future  needs  of  the 
city  for  generations  to  come.  The  assessed  value 
of  this  property,  land  and  buildings,  is  about  half 
a  million  dollars  less  than  the  estimate  placed  by 
the  Assessors  upon  the  land  now  occupied  by  the 
City  Hall  and  the  old  Court-House ;  which  would 
therefore  be  reasonably  certain  to  produce  as 
much  money  as  would  be  required  to  procure  the 
property  on  Beacon  street. 

The  Commonwealth  should  be  willing  to  co- 
operate with  the  city  in  this  project  to  the  extent 
of  laying  out  the  strip  between  Bowdoin  and  Mt. 
Vernon  streets— part  of  which  it  now  owns  — 
as  a  public  square.  In  the  execution  of  the  plan 
the  entire  crown  of  the  hill  could  be  levelled, 
existing  streets  widened,  and  the  whole  section 
very  much  improved  for  public  use. 

The  City  Architect  estimates  the  cost  of  a  build- 
ing covering  50,000  square  feet,  and  so  arranged 
as  to  be  capable  of  extension  in  the  future,  at 
$2,000,000.  It  seems  to  me  that  this  solution 
of  the  problem  is  by  far  the  most  economical 
in    the    long    run,   and    the    only  one  which  will 

26  MATOB'8    ADDBE8S. 

give  to  the  several  departments  of,  the  City 
Government  the  present  and  future  accommoda- 
tions which  they  and  the  public  are  interested 
in  securing ;  and  I  respectfully  commend  this 
suggestion  to  the  consideration  of  the  City  Coun- 
cil. It  is  not  likely  that  the  old  Court-House 
will  be  surrendered  to  the  city  before  the  middle 
or  the  close  of  1893,  and  if  the  suggestion  of  a  new 
building  on  the  site  named  meets  with  the  ap- 
proval of  the  City  Council,  steps  should  be  taken 
in  the  meantime  to  secure  the  necessary  legisla- 
tion, and  to  perfect  the   plans   and  specifications. 


The  work  of  platting  the  streets  in  the  out- 
lying sections  of  the  city,  authorized  by  chapter 
323  of  the  Acts  of  1891,  has  been  pushed  by 
the  Board  of  Survey  with  great  thoroughness, 
and,  so  far  as  I  can  ascertain,  to  the  satisfaction 
of  everybody  except  those  individuals  who  not 
only  wish  the  privilege  of  laying  out  their  land 
as  they  please,  regardless  of  the  interests  of  the 
community  as  a  whole,  but  expect  the  city  to 
reimburse  to  them  the  cost  of  their  own  selfish 
plans.  Two  plats  of  large  areas  have  already 
been  completed,  and  it  is  expected  that  before 
the  expiration  of  a  year  from  the  appointment  of 



the  Board  at  least  one-third  of  the  work  laid 
out  for  them  will  have  been  accomplished,  thus 
making  it  probable  that  the  entire  work  will  be 
finished  within  the  three  years  specified  in  the 

The  operations  of  the  Board  of  Street  Commis- 
sioners are  not  controlled  by  the  City  Council  or 
the  Mayor,  except  when  they  involve  the  imme- 
diate expenditure  of  money.  The  result  has  been 
the  laying  out  and  acceptance,  as  public  highways, 
of  miles  and  miles  of  streets,  designed  by  private 
individuals  for  their  own  personal  benefit,  without 
regard  to  the  general  welfare;  and  the  fact  that 
these  private  ways  have  been  made  public  streets 
has  necessitated  in  the  end  an  enormous  expendi- 
ture of  public  money,  the  greater  part  of  which 
can  have  produced  no  equivalent  public  benefit. 

When  the  act  creating  the  Board  of  Street 
Commissioners  was  passed  fears  were  expressed 
ofr  the  consequences  of  vesting  in  this  irrespon- 
sible board  the  arbitrary  power  to  lay  out 
streets.  These  fears  have  been  justified  by  the 
results ;  for  a  very  large  part  of  the  money  spent 
upon  street  improvements  —  amounting  in  the 
aggregate  for  damages  and  construction  to  over 
$50,000,000  —  is  directly  traceable  to  the  injudi- 
cious  use    made    by  the  Board    of    Street    Com- 


missioners  of  the  extraordiDaiy  powers  given  them. 
In  addition  to  the  enormous  sums  already  spent 
upon  street  constiniction  and  improvements,  largely 
for  the  benefit  of  private  individuals,  the  neces- 
sity of  spending  equally  large  sums  in  the 
future  will  arise  unless  something  is  done  to 
control  the  reckless  acceptance  of  private  ways 
as  public  streets.  There  are  to-day  22.43  miles 
of  uncompleted  private  ways  which  have  been 
accepted  by  the  Board  as  streets,  and  which  the 
citizens  will  in  the  near  future  be  called  upon 
to  finish  at  the  public  expense. 

The  creation  of  the  Board  of  Survey  was,  un- 
doubtedly, a  step  in  the  right  direction,  and 
when  its  work  is  completed  the  danger  from  this 
source  will  in  great  measure  cease  ;  but  in  the 
meantime  I  am  convinced  that  the  City  Govern- 
ment should  have  some  control  over  the  acts  of 
the  Board  of  Street  Commissioners,  and  I  recom- 
mend petitioning  the  Legislature  for  a  law  which 
shall  make  all  acts  of  the  Board  subject  to  the 
approval  of  the  Board  of  Aldermen  and  Mayor. 
In  this  way  the  work  of  the  Street  Commissioners 
can  be  made  to  harmonize  with  that  of  the  Board 
of  Survey,  a  result  which  it  has  been  found  im- 
possible  to  accomplish  during  the  year  just  passed  ; 
and  the  enormous  expenditures  ultimately  entailed 


upon  the  city  by  the  power  of  the  Street  Commis- 
sioners to  convert  unfinished  private  ways  into 
public  streets  will  be  curtailed  if  not  altogether 


The  amount  spent  for  street  widenings  and 
changes  of  grade  since  the  incorporation  of  the 
city  has  been  nearly  $40,000,000;  and  yet  no  one 
would  claim  that  the  citizens  to-day  enjoy  the 
benefit  of  this  expenditure  in  convenient  streets, 
or   deny    that    if   the    growth    of   the    city  is    to 

^  be  maintained  and  its  prosperity  for  the  future  as- 

sured, a  radical  and  extensive  system  of  street 
widenings  must  be  undertaken.  It  would  be  use- 
less to  expect  to  defray  the  great  cost  of  these 
improvements  in  the  manner  now  provided  by  law, 
—  that  is  to  say,  entirely  at  the  expense  of  the 
public,  saving  the  comparatively  small  amounts  that 
could  be  realized  in  betterments,  —  and  it  is  evi- 

y  dent  that,  unless  some  new  financial  methods  can 

be  devised,  the  citizens  will  be  obliged  to  forego 
the  benefits  of  these  improvements. 

Such  methods  are  employed  in  foreign  coun- 
tries, where  still  greater  street  widenings  have 
been  undertaken  with  little  or  no  expense  to  the 
municipality,  by  virtue   of  the  power  to  condemn 


Dot  only  the  property  that  is  to  be  turned  into 
the  highway,  but  also  the  adjacent  and  neighbor- 
ing estates  which  will  be  benefited  by  the  oper- 
ation. It  is  understood  that  a  large  part  of  the 
extensive  street  widenings  undertaken  in  London 
and  Paris  have  in  this  manner  been  secured 
without  ex}>ense,  owing  to  the  fact  that  the  in- 
creased value  of  the  property  bounding  on  the 
new  thoroughfare  more  than  equalled  the  cost  of 
that  which  was   turned  into  it. 

Realizing  the  necessity  for  adopting  some  such 
method  for  our  future  street  and  park  improve- 
ments, T  recommended  consideration  of  the  subject 
in  my  inaugural  of  last  year;  and  the  Board 
of  Aldermen  of  1891  authorized  me  to  petition 
the  Legislature  for  an  amendment  to  the  consti- 
tution granting,  under  proper  restrictions,  to  towns 
and  cities  and  their  duly  constituted  officers 
and  boards,  the  power  to  condemn  all  the  prop- 
erty that  may  be  financially  necessary  to  the 
success  of  street-widening  operations.  It  is  ear- 
nestly to  be  hoped  that  the  Legislature  will  see 
the  wisdom  of  this  reform ;  and  I  should  rec- 
ommend the  postponement  of  all  extensive  street 
widenings  until  authority  has  been  obtained  to 
conduct  them  in  this  manner.  With  these  powers 
vested  in  the  City   Government  it  will  be  possi- 


ble  to  open  several  new  and  wide  thoroughfares 
through  the  older  portions  of  the  city  substan- 
tially without  cost  to  the  citizens,  and  to  the 
great  advantage  not  only  of  the  people  of  this 
city,  but  of  all  the  surrounding  towns  whose 
inhabitants  have  occasion  to  use  our  streets.  It 
is  obvious,  moreover,  that  extensive  street  widen- 
ings  and  improved  bridge  connections  for  street 
and  railway  travel  over  the  tide  waters  surround- 
ing the  city  proper  are  necessary  before  rapid 
transit  across  the  city  can  be  secured.  The  en- 
tire interests  of  the  community,  therefore,  demand 
the  enactment  of  those  laws  by  which  alone  these 
improvements  can  be  obtained. 


While  it  would  be  useless  to  hope  for  any  radi- 
cal change  at  present  in  the  burdensome  system 
of  taxation  which  the  statutes  of  the  Common- 
wealth and  the  decisions  of  the  Supreme  Judicial 
Court  have  imposed  upon  the  people,  there  are 
nevertheless  one  or  two  particular  reforms  which 
should  be  urged  upon  the  Legislature  for  immedi- 
ate adoption.  Perhaps  the  fact  that  the  gentleman 
who  for  many  years  has  been  conspicuous  before 
the  committees  of  the  Legislature  as  an  earnest 
and  able  advocate  of  every  form  of  double  taxa- 


tion  received  at  the  last  State  election  only  1,772 
votes,  or  about  one-half  of  one  per  cent,  of  the 
total  vote  for  Governor,  may  lead  the  members 
of  the  General  Court  to  realize  that  there  is  less 
popular  interest  in  the  demand  for  taxing  certain 
kinds  of  property  twice  over  than  has  been 
represented  in  the  past. 


One  of  these  special  reforms  is  a  change  in 
the  corporation  law  which  will  permit  towns  and 
cities  having  street  railways  within  their  limits 
to  tax  locally  the  rails  and  sleepers  maintained 
by  these  corporations  in  the  public  highways. 
The  present  law  permits  local  taxation  of  the 
plants  of  gas  and  electric  light  companies,  but 
prevents  the  city  from  taxing  the  plant  of  street- 
railway  corporations.  The  corporations  of  course 
pay  the  tax  all  the  same,  but  they  pay  it  to  the 
wrong  persons.  It  is  distributed  among  the  va- 
rious cities  and  towns  in  proportion  to  the  amount 
of  stock  held  by  the  citizens  thereof;  and  the 
practical  result  is  that  a  very  large  part  of  the 
tax  collected  from  street-railway  companies,  and 
deducted  from  the  gross  receipts  earned  in  the 
towns  and  cities  where  their  tracks  are  operated, 
is  diverted  from  the  treasuries  of  these  localities 


and  bestowed  as  an  unearned  gratuity  upon  other 
towns  and  cities.  The  net  gain  to  the  city  of 
Boston  by  abolishing  this  law  and  assimilating 
the  street-railway  corporations  to  gas  and  elec- 
tric light  companies  would,  after  making  due 
allowance  for  the  fact  that  the  city  pays  over 
one-third  of  the  entire  State  tax,  amount  to  nearly 
^100,000  this  year,  and  to  still  more  in  the  future. 


Another  change  in  our  tax  laws,  for  which 
special  reasons  can  be  alleged  apart  from  the 
general  theory,  is  the  exemption  of  municipal 
bonds  from  taxation.  The  total  amount  realized 
by  the  city  of  Boston  from  the  right  to  include 
in  the  aggregate  taxable  property  of  the  city 
the  bonds  issued  by  the  various  cities  and  towns 
of  the  Commonwealth  is  less  than  $20,000  a 
year;  while,  on  the  other  hand,  the  city  is  obliged, 
by  reason  of  this  law,  to  pay  a  rate  of  interest  on 
its  funded  debt  higher,  by  at  least  one-half  of 
one  per  cent.,  than  it  would  if  its  bonds  were 
exempt  from  taxation.  That  this  statement  is  no 
exaggeration  is  shown  from  the  fact  that  other 
cities,  whose  bonds  are  totally  or  partially  exempt 
from  taxation,   are  enabled    to    borrow  money    at 


three  or  three  and  a  half  per  cent,  when  the  city 
of  Boston  is  paying  four.  Thus  the  last  issue 
of  bonds  by  the  city  of  "New  York  was  a  three 
per  cent,  loan,  having  17  years  to  run,  and 
brought  something  over  par;  city  of  Brooklyn 
48,  having  20  years  to  run,  have  recently  been 
sold  at  a  premium  of  four  per  cent.;  the  city  of 
Philadelphia  has  sold  its  latest  issue  of  3s, 
having  10  and  30  years  to  run,  at  par;  and  the 
last  issue  of  bonds  by  the  city  of  Baltimore 
was  of  three  and  a  half  per  cents,  which  were 
placed  at  par.  All  these  bonds  are  exempt  from 
taxation,  at  least  for  municipal  purposes,  and  the 
price  that  they  brought  in  the  market  may  be 
contrasted  with  the  fact  that  the  last  issue  of 
bonds  by  the  city  of  Boston  was  of  30-year  four 
per  cents,  which  commanded  a  premium  of  only 
one  and  a  half  per  cent.  It  cannot,  therefore,  be 
doubted  that  if  the  bonds  of  the  cities  and  towns 
situated  within  the  Commonwealth  were  exempt 
from  taxation,  the  city  of  Boston  would  reap 
the  benefit  of  at  least  one-half  of  one  per  cent, 
in  the  rate  of  interest  on  its  funded  debt.  This 
would  result  in  a  saving  to  the  city  in  interest 
of  from  115,000  to  |20,000  the  first  year,  and 
thereafter  increasing  in  arithmetical  ratio,  until 
before  20    years  have  elapsed  the  saving    in  the 


annual  interest  account  would  amount  to  several' 
hundred  thousand   dollars. 

A  collateral,  but  perhaps  even  more  important^ 
result  of  the  exemption  of  municipal  bonds  from 
taxation  would  be  that  they  would  furnish  a  safe 
and  profitable  investment  for  the  savings  of  the 
people,  and  could  probably  be  issued  in  the  form^ 
of  popular  loans  of  small  amount.  I  can  con^- 
ceive  of  no  greater  influence  working  for  a  con- 
servative management  of  our  city  finances  than 
a  wide-spread  distribution  of  the  city's  funded 
debt  among  its  own  citizens. 

It  is  earnestly  to  be  hoped  that  the  Legislature 
will  grant  the  petition  of  the  last  City  Govern- 
ment for  an  amendment  to  our  tax  laws  which 
shall  permit  us  to  reap  the  great  benefits  of  an 
exemption  of  municipal  bonds  from  taxation. 


It  cannot  be  too  frequently  brought  to  the 
attention  of  our  citizens  that  the  chief  reason  for 
the  inordinately  heavy  taxes  paid  by  them  in  com- 
parison with  the  residents  of  other  large  cities  in 
this  country  is  to  be  found  in  the  fact  that  a 
large  part  of  the  municipal  work,  which  in  other 
cities  is  reimbursed  to  the  municipality  by  means 

36  MAYOB'S    ADDB£SS. 

of  assessments  levied  upon  the  individuals  immedi- 
ately benefited,  is  in  Boston  paid  out  of  the  gen- 
eral tax  levy ;  and  in  the  further  fact  that 
innumerable  special  privileges  are  given  away  in 
Boston,  which  in  other  places  are  made  the  sources 
of  considerable  revenue. 

The  cost  of  furnishing  householders  and  builders 
with  sewers,  water-pipes,  sidewalks,  and  other  ac- 
commodations in  the  streets,  which  in  most  of  the 
other  large  cities  in  the  country  is  borne  —  in  some 
cases  altogether,  and  in  other  cases  in  great  part — 
by  the  individuals  benefited,  is  defrayed  in  Boston 
almost  entirely  out  of  the  tax  levy.  Thus,  during 
the  five  fiscal  years  ending  April  30,  1891,  there 
was  paid  out  in  damages  for  extending  and  widen- 
ing streets  and  changing  their  grade,  $1,593,153.05, 
while  the  amount  received  in  betterments  was  only 
f  131,177.34,  or  about  eight  per  cent,  of  the  outlay. 
The  total  expenditures  for  sewer  construction  and 
repairs  during  this  period  amounted  to  $3,904,167.31, 
while  the  amount  received  in  sewer  assessments 
was  only  $402,708.67,  or  about  ten  per  cent,  of 
the  cost  to  the  city;  and  under  the  operation  of  the 
present  sewer-assessment  law  the  percentage  is 
rapidly  falling.  The  amount  paid  for  street  con- 
struction and  repairs  during  the  same  period  was 
$5,052,367.29,  while  the  amount  received  in  assess- 




ments  was  only  $84,767.68,  or  about  one  and  a  half 
per  cent.  The  consumers  of  water  have  profited 
at  the  expense  of  the  citizens  at  large  to  the 
extent  of  $2,332,969.17  collected  of  the  various 
city  departments  since  1853  in  special  charges 
which  have  been  made  good  out  of  the  general  tax 
levy;  to  the  extent  of  about  $230,000  deducted 
from  the  water  bills  in  1886,  1890,  and  1891;  by 
several  reductions  in  the  schedule  and  meter  rates 
during  the  past  ten  years ;  by  the  practice  of  putting 
in  house  connections  without  charge;  by  expensive 
extensions  for  fire  purposes  from  which  no  revenue 
whatever  is  derived;  and  by  about  $2,000,000  ex- 
pended in  ordinary  pipe  extensions;  all  of  which 
work  has  been  charged  to  construction  and  paid 
for  by  loans  rather  than  taken,  as  a  more  correct 
financial  policy  would  have  dictated,  from  the  in- 
come of  the  department. 

These  figures  explain  more  plainly  than  any 
general  assertion  why  the  net  debt  of  the  city  has 
increased  so  fast,  and  prepare  us  for  the  figures 
of  the  United  States  census  of  1890,  showing  a 
greater  annual  per  capita  expenditure  for  the 
city  of  Boston  than  for  any  other  large  city  in 
the  country.  In  Baltimore  the  rate  was  only 
$17.91,  in  Brooklyn  $20.88,  in  Chicago  $16.73,  in 
Cincinnati  $21.74,  in    Philadelphia    $18.95,  in    St. 

38  MAYOR'S    ADDBES8. 

Louis  $13.74,  and  in  San  Francisco  f  18.86 ;  while 
in  Boston  it  was  $35.94. 

There  can  be  no  question  that  the  burden  of 
taxation  is  greater  in  Boston  than  in  any  of  the 
other  chief  cities  of  this  country,  and  probably 
greater  than  in  any  other  large  community  in 

The  remedy  is  not  far  to  seek :  it  consists 
in  restricting  the  amount  of  work  done  for  the 
benefit  of  individuals  at  the  expense  of  the  citi- 
zens at  large,  and  charging  to  the  former  their 
just  proportion  of  the  cost. 


The  Legislature  of  1891  refrained  from  passing 
any  laws  against  the  expressed  opposition  of  the 
City  Government,  and  enacted  an  unusually  large 
number  of  measures  at  the  request  of  the  City 
Council.  It  is  to  be  hoped  that  the  action  of  the 
Legislature  of  1892  towards  the  city  will  be  con- 
trolled by  the  same  desire  to  interfere  with  our 
local  affairs  only  when  such  interference  is  gener- 
ally demanded,  and  on  the  other  hand  to  grant  all 
reasonable  requests  preferred  by  the  municipal 
authorities.  It  is  pleasant  to  be  able  to  recognize 
a  growing  sentiment  at  the  State  House  and  else- 
where  in   favor  of  increasing  the   limited   control 


over  its  own  affairs  now  enjoyed  by  the  city  of 
Boston ;  and  it  is  to  be  hoped  that  not  many 
years  will  elapse  before  the  city  will  secure  those 
extensive  powers  of  self-government  which  have 
been  so  profitably  exercised  in  foreign  cities.  r 

The  needs  of  the  city  and  its  surrounding 
towns,  considered  in  their  metropolitan  relations, 
would  seem  to  be  a  fit  subject  for  State  legislation 
so  long  as  the  metropolitan  area  is  divided  into 
difierent  political  communities;  and  the  theory  that 
if  the  power  of  the  Commonwealth  is  invoked  to 
interfere  in  the  internal  finances  of  the  city  for 
the  benefit  of  other  towns  there  exists  a  correla- 
tive obligation  to  help  the  city  and  these  towns 
by  the  use  of  the  credit  of  the  State,  appears  to 
be  gaining  ground.  The  act  creating  the  Metro- 
politan Sewerage  Commissioners  is  an  illustration 
of  the  proper  exercise  of  the  right  of  the  Com- 
monwealth to  interfere  in  local  affairs  and,  in 
consideration  of  such  interference,  to  loan  its 
credit  to  the  several  communities  on  which  the 
financial  burden  of  the  measure  falls. 

Another  illustration  is  to  be  found  in  the  laws 
passed  in  1891  creating  special  commissions  for 
the  investigation  of  the  problems  growing  out 
of  the  need  in  Boston  and  vicinity  of  increased 
transportation  facilities,  and  out  of  the  desirability 


of    improving    the     Charles-river    basin     for    the 

benefit  of  the  cities  and  towns  bordering  thereon. 

A  further  application    of  this    principle    would 

in  my  judgment  be  the  creation  of  a  Metropolitan 

Park    Commission,    with    authority  to    secure  for 

.    park  purposes,    while  there  is    yet    time,  various 

desirable  tracts    of  land    in    the    vicinity    of   the 

h      city. 


The  recount  of  votes  cast  at  the  last  munici- 
pal election  has  disclosed  errors  in  counting  which 
if  not  thoroughly  investigated  and  corrected  will 
tend  to  discredit  the  Australian  ballot  system 
and  to  retard  the  general  adoption  of  what  has 
seemed  to  be  one  of  the  greatest  electoral  re- 
forms of  modem  times. 

There  was  no  formal  recount  of  votes  for  Mayor ; 
but  the  gentlemen  engaged  in  recounting  the  votes 
for  School  Committee  have  publicly  stated  that  they 
examined  the  votes  for  Mayor  in  two  precincts, 
and  that  in  both  the  vote  had  been  correctly 
counted,  but  incorrectly  tabulated,  so  that  one 
candidate  had  been  given  50  votes  more  and  the 
other  50  votes  less  than  they  were  respectively 
entitled  to;  making  a  net  error  for  the  two  pre- 
cincts of  200  votes.      I  am  unwilling  to    believe 


that  these  errors  were  due  to  anything  but  care- 
lessness; but  it  is  difficult  to  avoid  the  conclusion 
that  if  an  error  of  200  votes  is  discovered  in  two 
precincts  out  of  205,  there  must  have  been  many 
more  in  the  remaining  precincts;  and  that  in  a 
close  contest  little  reliance  could  be  placed  on 
the  ward  •  returns. 

It  has  also  been  publicly  stated  by  these  gentle- 
men that  the  returns  by  the  ward  officers  for  School 
Committee  were  found  to  be  correct  in  only  8  per 
cent,  of  the  precincts. 

These  statements  demand  immediate  and  serious 
attention,  and  can  only  be  verified  by  a  complete 
examination  of  all  the  ballots  cast.  Members  of 
the  City  Council  or  the  Legislature  can  hardly  be 
expected  to  undertake  this  great  labor,  even  if 
permitted  by  law  to  do  so;  but  there  is  a  volun- 
tary and  non-partisan  organization,  known  as 
the  ^^  Ballot  Act  League,'^  that  might  perhaps 
be  willing  to  undertake  the  work  if  given  au- 

I  recommend  to  your  consideration  the  expedi- 
ency of  requesting  the  Legislature  to  permit  the 
members  of  the  Ballot  Act  League,  or  such  other 
organization  ^or  committee  as  may  seem  to  you 
preferable,  to  receive  and  examine  all  the  ballots 
cast  at  the  recent  city  election,  and  make  a  full 


report  thereon,  with  such  suggestions  for  amend- 
ing the  law  as  shall  seem  to  them  appropriate. 
One  of  the  collateral  consequences  of  the  par- 
ticular form  of  the  Australian  ballot  adopted  in 
Massachusetts  is  the  encouragement  afforded  to 
careless,  inaccurate,  and  partial  voting,  especially 
for  the  minor  offices.  That  this  is  an  evil 
threatening  to  make  a  lottery  out  of  an  election 
to  an  office  for  which  there  are  many  candidates, 
and  thus  entirely  to  defeat  the  popular  will,  can 
hardly  be  denied;  but  the  remedy  is  difficult  to 
suggest,  and  one  object  to  be  gained  by  a  careful 
examination  of  the  ballots  cast  at  the  last  city 
election  might  well  be  the  discovery  of  the  exact 
causes  of  the  evil,  and  the  best  means  to  mini- 
mize it.      ^ 



In  conclusion,  gentlemen,  let  me  express  the 
hope  that  the  relations  between  the  legislative  and 
executive  branches  of  the  City  Government  of  1892 
will  be  as  friendly  and  mutually  helpful  as  in  the 
year  just  past. 

Let  me  remind  my  party  associates  in  the  City 
Council  that  the  practice  of  making  party  nomi- 
nations for  municipal  office,  however  objectionable 
from  certain  standpoints,  brings,  or  should  bring, 


with  it  the  compensating  advantage  of  a  lively  and 
never-absent  sense  of  party  responsibility.  To  the 
extent  that  questions  of  municipal  policy  can  be 
said  to  have  been  considered  at  the.  last  city  elec- 
tion, the  verdict  of  the  people  on  December  15th 
can  be  interpreted  only  as  a  demand  that  the  city 
should  live  within  its  income,  that  there  should  be 
no  increase  in  its  net  indebtedness,  and  that  its 
money  should  be  appropriated  with  a  view  to  the 
general  welfare  rather  than  to  the  claims  of  special 
sections  or  of  special  interests;  and  you  and  I  are 
in  honor  bound  to  permit  no  departure  from  this 
policy  except  in  some  great  and  unforeseen  emer- 

To  the  members  of  the  City  Council  generally, 
let  me  say  that  they  will  find  that  not  one-tenth 
of  one  per  cent,  of  the  questions  that  will  come 
before  tliem  for  decision  involve  political  or  par- 
tisan considerations  ;  and  there  should  accord- 
ingly be  no  difficulty  in  legislating  for  the  city  in 
the  same  non-partisan  spirit  that  inspired  their 

Let  us  all  remember  that,  whether  elected  by 
wards,  by  districts,  or  by  the  citizens  at  large,  our 
chief  duty,  as  officers  of  the  municipal  corpora- 
tion, is  to  administer  the  government  in  such  man- 
ner as  to  promote  the  best  interests  of  the  city  as 


a  whole;  let  us  not  mistake  the  clamor  of  those 
special  and  selfish  interests  that  besiege  the  City 
Hall  for  the  voice  of  the  people;  let  us  be  ever 
mindful  that  the  wholesome  light  of  public  criti- 
cism will  shine  on  all  our  acts;  and  let  us  merit 
the  confidence  of  the  people  by  furnishing  a  clean, 
economical,  and  progressive  administration  of  their 
municipal  affairs  in  1892. 




ciTT  AMD  comrrr  debt. 

GroBS  funded  debt,  Dec.  81,  1890    .        .        •  $55,440,861  06 
Add  funded  debt  issued  in  1891      .        .        .      2,716,500  00 

958,156,861  06 
Deduct  funded  debt  paid  in  1891    .        .        .      1,914,115  16 

Gross  debt,  Dec.   81,  1891        .        •        •        .  $56,242,745  90 
Sinking-Funds,  Dec.  81,  1890    .  $24,888,140  14 
Receipts  during   1891         .        .      8,084,677  90 

$27,422,818  04 
Payments  during  1891       .        .      1,908,886  46 

$25,518,981  58 
Bonds  and  mortgages,  the  pay- 
ments of   which    are   pledged 
to  the  payment  of  debt .        .  20,405  98 

Total  redemption  means,  Dec.  81,  1891     .    25,589,887  56 

Net  debt,  Dec.  81,  1891    ....  $80,708,858  84 


Gross  debt,  Dec.  31,  1891         ....  $56,242,745  90 
Gross  debt,  Deo.  81,  1890         ....    55,440,361  06 

Increase $802,384  84 

Net  debt,  Dec.  31,  1890 $31,053,496  98 

Net  debt,  Dec.  31,  1891 30,703,358  34 

Decrease $350,138  64 

City  debt,  indading  balance  of  debts  assumed 

by  acts  of  annexation $36,057,971  92 

Ck>unty  debt 3,212,000  00 

Cochitaate  water  debt 16,423,773  98 

Mystic  water  debt 549,000  00 

$56,242,745  90 

At  the  present  time  the  assnmed  debts  (included  in  above) 
remaining  unpaid  are  on  account  of 

Charlestown  city 

•                •                •                . 

$182,000  00 

bearing  6% 

Mystic  water    . 

$148,000  00 

"       6% 

it                     C( 

108,000  00 

"       5% 


it                   (4 

18,000  00 

"       i% 

<«                   <i 

240,000  00 

"     H% 


ii                     C4 


35,000  00 

549,000  00 

"     Hfc 

$731,000  00 



Loans  Authobized  bt  Speoial  Statutes  Outside  of  Debt 


looll  • 








271  > 





Pablio  Park  CoDstniotl<»i .  .  . 

Bollolk  Oovnty  Oonrt-HoaM    • 

Haryard  Bridge 

Public  Park  Landa 

Sewer,  Tremont  at.  ••••.. 

Stony  Brook  Improyement  .  . 

pQbllc  Park  Landa 

New  Library  Building   •  •  .  . 

W.  Oheeter-park  Bxtanalon  •  . 

Congresa-at.  and  Oliyer-at.  Ez- 
tenaion • 

Improyed  Sewerage 

PnbUc  Parka,  Oharleatown  .  . 


New  Library  Building   .  .  •  • 

Laying  Out  and  Oonatraetlon  of 


1 2,500,000 
*  76,000 


Bate  of 

*500,000  00 
600,000  00 

200,000  00 

•  8,500,000  00 
« 1,000,000  00 

June  21, 1886  . 
Mar.  21, 1887  . 
May  18, 1887.  . 
May  26,1887.  . 
June  U,  1887. 
June  16, 1887  . 
May  28, 1888.  . 
Mar.  1, 1880 .  . 
April  12, 1880. 

April  26, 1888. 

May  0,1880  .  . 

May  5  and        ) 
June28, 180O  ( 

May  7, 1801  .  . 

May  11, 1801. 


$2,600,000  00 

2,400,000  00 

250,000  00 

400,000  00 

500,000  00 

600,000  00 

1,000,000  00 

600,000  00 
200,000  00 
700,000  00 

>In  addition  to  ooet  of  land :  $2,400,000  of  thla  amount  already  approved  by  City  Couneil 
and  leaned. 

sNeyer  approved  by  City  OounoiL 

•Entire  loan  authoriied  by  City  Couneil;  only  $700,000  laaued. 

«  Authorized  by  City  Council,  but  not  yet  laaued. 

■Not  exceeding  $1,000,000  each  year— debt  laaued  in  1801  ($50,000)  inaide  of  debt  limit; 
debt  laaued  hereafter  will  be  outoide  of  debt  limit— $500,000  (including  $50,000  already 
laaued)  authorised  by  City  CoundL 





1822  (town  debt)  $100,000  00 

1856-7    .     .     .       $431,900  00 

1822-8    .     .     , 

3,550  00 

1857-8    , 

1,168,400  00 

1823-4   .     .     . 

103,500  00 

1858-9    , 

1,232,950  00 

1824-5    .     .     , 

283,257  75 

1859-60 , 

735,800  00 


1825-6    .     .     , 

318,685  32 

1860^1    , 

992,700  00 


1826-7    .     .     . 

873,475  00 

1862-8    , 

1,604,850  00 

1827-8    .     .     . 

181,000  00 

1863-4    . 

850,000  00 

1828-9    .     .     . 

147,250  00 

1864-5    , 

639,709  80 

1829-80 .     .     , 

295,480  75 

1865-6    . 

712,150  00 

1830-1    .     .     , 

281,000  00 


.      1,499,000  00 

1831-2    .     .     , 

199,743  18 


1,037,175  00 

1832-8    .     .     , 

466,592  53 


.      2,937,000  00 

1833-4    .     .     , 

593,044  00 


531,500  00 

1834-5    .     .     , 

744,626  69 


.      3,561,500  00 

1885-6    .     .     . 



5,238,000  00 


1836-7    .     .     , 

359,804  65 


2,981,000  00 


1837-8    .     .     . 

217,300  00 


,      7,255,176  65 

1838-9    .     .     , 

283,200  00 


,      4,478,600  00 

1839-40 .     .     , 

478,332  56 


2,206,200  00 

1840-1    .     .     . 

345,000  00 


.      8,533,300  00 

1841-2    .     •     , 

»          •     •     •     • 


667,000  00 

1842-3    .     .     . 

•     •     •     • 


1,849,000  00 

1843-4    .     .     , 

»          •     ■     •     • 


1,890,000  00 

1844-5    .     .     , 

11,566  62 


2,701,000  00 

1845-6    .     .     , 

109,653  16 


123,000  00 

1846-7    .     .     . 

297,860  82 


.      2,078,500  00 

1847-8    .     .     , 

1,419,688  39 


.      8,278,500  00 

1848-9    .     .     , 

1,085,367  51 



1,837,500  00 


1849-50 .     .     . 

528,371  23 


1,742,700  00 

1850-1    .     .     , 

1,195,285  00 


.      8,838,800  00 

1851-2    .     .     . 

1,180,513  05 


.      8,324,700  00 

1852-3    .     .     , 

2,044,711  11 


1,529,300  00 

1853-4    .     .     , 

944,118  00 


.      3,784,000  00 

1854-5    •     .     < 

306,500  00 


.      5,462,000  00 

1855-6    .     .     . 

158,100  00 


.      2,716,500  00 





1868,  —  Boxbury 

•                    •                     a 

$991,456  00 

1870.  —  Dorchester    . 

•                   •                    •                     • 

866,200  00 

1874.  —  Charlestown  . 

.     $2,780,849  46 


708,690  60 

West  Roxbury      - 

520,000  00 

8,958,940  06 

(E.  db  0.  E.) 

$5,816,596  06 


April  80,  1822 

»  1828 

-  1824 

•<  1836 

••  1826 

«•  1827 

«  1828 

••  1829 

"  1830 

"  1831 

*•  1882 

<«  1883 

<«  1834 

••  1835 

«•  1886 

"  1837 

<•  1888 

'•  1838 

"  1840 

••  1841 

Funded  Debt. 

$100,000  00 

108,660  00 

207,060  00 

806,878  86 

864,800  82 

1,011,776  00 

940,860  00 

911,860  00 

801,930  76 

880,830  76 

817,128  96 

940,868  28 

1,078,068  28 

1,147,898  97 

1,264,400  00 

1,407,200  00 

1,491,400  00 

1,606,600  00 

1,696,282  66 

1,668,800  00 


$8,267  27 
8,264  61 

li6,980  98 
299,096  88 
279A24  86 
267,606  76 
228,028  80 
284,096  69 
176,784  76 
168,094  70 
168,686  46 
102,075  66 
182,246  66 
217,966  46 
97,486  60 
in,489  81 
90,849  66 


Fondod  Debt. 

$100,282  T8 
208,796  80 

218,810  80 

712,678  62 

670,226  U 

644,844  24 

668,902  46 

646,286  06 

641,889  18 

772,268  68 


1,046,8^8  42 

1,082,154  44 

1,279,244  66 

1,808,968  40 

1,602,068  41 

1,026,798  26 

1,678,450  44 



Funded  Debt  Statement.  —  Continued. 

April  90, 1848 

«         IMS 

<•        1844 

'<        1846 

*•        1848 

«•        1847 

'•        1848 

«        1849 

••        1860 

«        1851 

*•        1852 

•*        1853 

«<         1854 

««        1855 

Deo*  81,  1855 

«        1850 

«        1857 

M         1858 

••         1859 

«         1860 

•*         1881 

"        1862 

•*         1868 

-        1864 

**        1865 

*•        18G6 

«•        1867  . 

*•        1868 

<•         1860 

*«        1870 

"        187X  

"        1872 

•«         1878 

Funded  Debt. 

$1,594,700  00 

1,518,700  00 

1,428,800  00 

1,168,266  62 

1,158,718  16 

1,296,626  96 

8,468,606  87 

6,884,846  54 

6,196,144  86 

6,801,641  36 

7,110,670  70 

7,869,435  66 

7,799,855  82 

7,161,140  77 

7,195,649  77 

7,110,249  77 

7,967,499  77 

9,163,049  77 

9,219,599  n 

9,236,209  77 

9,149,409  77 

10,892,207  77 

10,103,782  77 

11,380,282  77 

11,686,875  91 

12,845,375  91 

13,638,850  91 

16,516,849  01 

16,607,600  91 

28,908,860  91 

27,865,916  80 

29,718,677  91 

86,627,293  45 


$88,980  79 

184,889  81 

802,149  00 

878,400  46 

717,610  79 

800,977  82 

478,218  28 

888,896  02 

810,250  40 

478,684  98 

489,066  22 

872,674  16 

1,411,868  00 

1,042,977  90 

1,172,846  26 

l,161,4n  83 

1,238,862  82 

1,884,415  14 

1,774,272  97 

1,192,435  48 

1,222,058  94 

1,028,027  18 

1,307,078  27 

1,597,034  69 

2,065,776  61 

8,868,626  00 

4,609,280  78 

6,618,809  76 

7,621,814  66 

9,779,442  67 

11,770,162  86 

13,552,249  88 

14,860,895  82 


Funded  Debt. 

$1,505,769  21 

1,384,310  00 

1,121,660  91 

784,866  17 

436,108  37 

495,649  16 

2,974,893  09 

4,946,460  62 

6,884,884  95 

6,827,906  87 

6,021,614  48 

6,986,761  61 

6,887,997  82 

0,108471  67 

6,022,803  61 

6,698,771  92 

6,783,686  96 

7,898,684  63 

7,446,826  80 

8,048,864  29 

7,927,446  88 

9,364,180  69 

8,886,654  50 

0,788,108  08 

9,620,600  40 

0,476,840  01 

8,884,670  18 

10,808,640  16 

9,086,686  86 

14,128,008  24 

16,096,764  46 

16,166,428  68 

21,176,898  18 



FaKDED  Debt  Statement.  —  Concluded. 

Boo.  81,  1874 

"  1876 

««  1876 

«•  1877 

••  1878 

"  1879 

«.  1880 

'•  1881 

«•  1882 

»  1888 

**  1884 

«•  1886 

"  1888 

••  1887 

*'  1888 

«  1880 

"  1800 

"  1891 

B.  ft  O.  S. 

Funded  Debt. 

$48,474,841  96 
48,886,682  24 
44,968,822  80 
48,864,444  06 
41,809,688  81 
48,022,816  20 
41,103,760  60 
40,018,698  02 
41,106,677  88 
42,644,128  96 
42,981,984  91 
48,416,946  84 
46,887,887  86 
48,682,428  68 
48,676,609  29 
61,186,741  09 
66,440,861  06 
66,242,746  90 


$16,661,906  78 
16^1,626  60 
16,681,789  84 
16,498,979  12 
16,626,411  89 
16,926,068  16 
14,446,294  19 
16,nO,661  42 
16,724,662  86 
17,282,488  44 
18,216,870  64 
18,716,981  66 
19,988,492  89 
21,054,840  11 
21,726,667  80 
22,863,963  08 
24,886,864  08 
26,689,887  66 

Fnnded  Debt. 

$27,812,986  28 
27,605,006  74 
28,277,082  96 
26,866,464  94 
26,184,in  42 
26,097,788  05 
26,668,466  41 
24,248,046  60 
24,881,026  Oa 
26,811,686  62 
24,766,064  27 
24,700,014  29 
26,864,896  47 
27,627,688  47 
26,860,901  99 
28,321,788  06 
81,068,406  98 
80,708,868  34 

Jaues  H.  Dodge, 

City  Auditor. 




Assessors'  Office,  Cmr  Hall, 

Boston,  Jan.   1,   1892. 
Hon.   Nathan  Matthews,  Jb., 

Mayor  of  the  City  of  Boston: 
In  conformity  with  the  provisions  of  the  Revised  Ordi- 
nances, we  herewith  transmit  a  statement  of  the  Assessors' 
valuation  for  the  preceding  five  years,  and  of  the  abatements 
thereon  allowed  previous  to  the  thirty-first  day  of  December 
last.  Also  the  average  of  such  valuations  reduced  by  such 


AiMMon*  ValuatloiM. 

Ab«tem«iiU  to  Deo.  81 

1887         . 

.      $748,168,217  41 


1888       . 

765,355,048  89 


1889       . 

795,941,043  71 


1890       . 

822,456,800  00 


1891       . 

855,409,914  62 



.  $3,987,331,024  13 


Less  abatem 

ents,          37,150,300  00 

$3,950,180,724  13 

Divided  by  5,  gives  $790,036,144.00  average  Assessors'  valu- 
ation for  the  past  five  years. 

Respectfully  submitted, 

For  the  Board  of  Assessors, 

Joshua  S.  Duncklee, 




CoLLEcnNa  Departmekt,  Citt  Hall, 

Boston,  Jan.   1,   1892. 
HoK.  Nathan  Matthews,  Jr., 

Mayor  of  the  City  of  Boston : 

Sir:  The  assessments  committed  to  the  Collector  for  the 
financial  year,  beginning  May  1,  1891,  not  including  Cochitu- 
ate  and  Mystic  water-rates,  amount  to  $11,678,826.08. 
Of  this  amount  there  has  been  to  Dec.  81,  1891, 
$9,683,521.22  collected;  $63,629.05  abated;  and  $1,931,675.81 
remains  uncollected.  This  includes  the  State,  City,  and 
County  taxes,  $10,860,874.76,  of  which  $9,030,534.35  has 
been  collected,  $61,089.22  abated;  leaving  $1,769,251.19  un- 
paid, and  the  Bank  tax,  $839,790.00,  of  which  $827,694 
has  been  paid  and  $12,096  unpaid. 

The  Cochituate  water-rates  assessed  on  first  of  January, 
1891,  were  $1,566,111.30.  There  has  been  paid  of  these 
rates  $1,286,423.43;  abated,  $111,574.84;  leaving  $168,113.03 

The  Mystic  water<«rates  for  the  same  tidie  stand  as  follows: 
Assessed,  $357,097.94 ;  paid,  $320,066.15;  abated,  $34,534.23; 
unpaid,  $2,497.56. 

There  has  also  been  received  of  the  Cochituate  rates  for  1892, 

The  total  receipts  from  all  sources  from  May  1,  1891,  to 
Dec.  31,  1891,  inclusive,  amount  to  $13,509,798.51. 

A  general  summary  of  the  accounts  shows  that  the  balance 
of  bills  and  assessments  outstanding 


Jan.  1,1891,  were $2,752,661  63 

The  assessments  from  Jan.  1,   1891,  to  Dec. 

81,  1891 14,131,686  85 

Cash  deposits,  Jan.  1,  1891,  to  Dec.  31,  1891,  2,729,734  89 

Total  amount  charged  to  Collector          .        .  $19,614,082  87 

The  Collector  is  credited  with  abatements       •  $411,148  86 

Cash  paid  City  Treasurer        ....  16,747,607  67 

Balance  uncollected 2,455,326  34 

$19,614,082  87 

The  following  statement  shows  the  amounts  of  the  Assess- 
ors' warrants  for  two  years:  — 

1890-91 $10,996,923  15 

1891-92 10,860,874  76 

and  the  collections,   abatements,    and  outstanding    thereon    to 
December  31st  of  the  respective  years :  — 

1890-91.    Collected      .        .        ,     $8,980,135  32  or  81.7% 
Abated        .         .         .  70,698  81  "       .6% 

Uncollected         .        .       1,946,089  02  *'  17.7% 

$10,996,923  15 

1891-92.    Collected      .        .        .    $9,030,534  35  or  83.1% 
Abated        .         .         .  61,089  22  '<      .6% 

Uncollected  .        .       1,769,251  19  ''  16.3% 

$10,860,874  76 


James  W.  Riceeb, 

Gity  CoUedar. 




LOANS    ISSUED    IN  1891. 

Date  of  Order. 


Inclnded  iii 
Debt  limit. 

Outdde  Debt 

Dec.  81. 1887   .  .  . 

Public  Park  Conttmotion   ..... 

$600,000  00 

Hay  20, 1891  ..  . 
aCarohl8,1889 .  .  . 
Nov.  IS.  1889   ,  ,  . 

•(        «(             «i             •  .      , 

700,000  00 

New  Pabllo  Llbrarv 

189,000  00 

Additional  HqpdIt  of  Water  .... 

187,600  00 

Jane  27, 1891   .  .  . 

Oct.  26,1891   .  .  . 

April  90  and  May 
16, 1891 

Kay  20, 1801    .  .  . 

Jan.  27, 1801    .  .  . 

ICrftimAlnTi  nf  MAlna  .....    .... 

100,000  00 

fiewera ............... 

$80,000  00 

600,000  00 
60,000  00 

177,000  00 
288,000  00 

School-honaea  and  Sitea 

Street  Constmetion  Act 

Miaoellaneoua :  ~- 

Btony  Brook $38,000  00 

School-bouaes  .  .  .  •    112,000  00 
BeweiB 82,000  00 

To  make  good   defldendea  in  de- 
partment approprlationa  for  1800- 

Street  Department  •  $188,000  00 

Police  Department .     76,600  00 

Sanitary  Police  De- 
partment 24,600  00 


$1,090,000  00 

$1,626,600  00 
1,090,000  00 

$2,716,600  00 



Special  appropriations    that    should  be    transferred    are    the 
following :  — 

$35)500  —  Remainder  of   an  appropriation  in  1891  (originally 

$50,000)  for  the  extension  of  Canseway  street. 
The  estimated  cost  of  this  extension  is  $95,000. 

85,000  —  Remainder  of  an  appropriation  in  1891  (originally 
$41,000)  for  the  extension  of  Talbot  avenue. 
The  original  appropriation  was  insufficient  in  the 
opinion  of  the  Board  of  Street  Commissioners. 

60,000  —  Appropriated  in  1889  and  1890  for  a  bnilding  for 
the  Fire  Department  at  the  North  End.  No  site 
has  been  found  within  the  appropriation. 

40,000  —  Appropriated  in  1889  and  1890  for  a  stable  in  the 
West  End  for  the  Street  Department.  In- 

12,000  —  Appropriated  in  1891  for  a  city  bnilding  on  Dor- 
chester street.  The  School  Committee  and  Fire 
Department,  both  of  which  are  interested  in 
this  appropriation,  have  been  unable  to  agree 
upon  its  use. 


These  appropriations  are  not  at  present  available  for  the 
reasons  stated,  and  the  amounts  should  be  utilized  by  transfer 
to  more  necessary  objects  that  can  be  undertaken  at  once. 






CiTT  OF  Boston, 
Board  of  Commissioners  of  Sinking-Funds, 

CiTT  Hall,   Jan.   4,   1892. 

Hon.  Nathan  Matthews,  Jr., 

Mayor  of  the   Gity  of  Boston: 
Sib:    Iq    accordance    with     the    provisions     of    Chap.    93, 
\  Acts    of    1891,   it    is    estimated    that    the    amount  which    the 

city  will  be  able  to  borrow  daring  the  present  municipal 
year  within  the  debt  limit  established  by  law,  is  $4,235,000 
as  per  schedule  annexed. 

A.   Davis  Weld, 
Joseph  H.   Gray, 
Hbnrt  R.   Reed, 
Samuel  Johnson, 
Board  of  Gommisaionera  of  SinJcing-Funds. 

Alfred  T.   Turner, 
,^  CUy   Treasurer. 

James  H.   Dodge, 

City  Auditor. 

Right  to  borrow  Jan.  1,  1892  ....  $3,435,152 
April  1,   1892.    Interest  on  investments       .        .  180,000 

Carried  forward^  $3,615,152 



Brought  forward^ 


July      1,   1892. 

Interest  on  investments 


Oct.       1,      " 

((                  (C                     (( 


Oct.      1,      " 

Debt  paid  from  appropriation  . 


Nov.   30,      " 

Appropriation  for  debt 


Jan.       1,    1893. 

Interest  on  investments 

87,000                         i 

Jan.       1,       " 

Sterling  debt  redeemed 


Jan.       1,       *' 

Interest  on  bank  deposits 


Less  loans  authorized  bat  not  negotiated 










JANUARY    2,   1893. 

Pl  BOSTOWIA.    ^l 

Rockwell  and  Churchill,  Qty  Printers. 



s  "  ~L   ~  <'■   : 








JANUARY    2,    1893. 

^W,    1«30.     ^^ 

Rockwell  ANn  Churchill,  City  Printers. 



In  Board  of  Aldermen, 

January  2,  1893. 

Orderedy  That  His  Honor  the  Mayor  be  requested  to 
fiimish  the  City  Council  with  a  copy  of  his  inaugural 
address  for  publication. 

Passed.     Sent  down  for  concurrence.     January  2,  came 

up  concurred. 

A  true  copy. 


J.  M.  Galvin, 

Qity  Clerk. 


Gentlemen  of  the  City  Council: 

The  first  duty  of  the  City  Government  of  1893 
will  be  the  consideration  of  the 


for  the  fiscal  year  1893-94,  the  estimates  for  which 
are  herewith  submitted.  The  interest  and  sinMng- 
fund  requirements  for  the  year  are  estimated  at 
$2,910,219,  which  is  $240,201  less  than  for  the 
fiscal  year  now  closing.  The  amount  available  for 
department  expenditures  is  $10,469,408,  a  sum 
which,  according  to  the  experience  of  the  last  two 
years,  should  be  suficient  to  enable  the  city  to 
live  within  its  income. 

The  cost  of  lighting  the  public  streets  has  become 
excessive.  Investigations  by  the  City  Engineer  and 
other  data  at  hand  satisfy  me  that  a  material  reduc- 
tion should  be  made  in  the  prices  now  paid  by 
the  city  for  gas  and  electricity.  The  contracts 
with  the  various  gas  companies  expire  this  year, 
and  we  have  no  contract  with  the  principal  electric 
light  company.  An  opportunity  is  therefore  pre- 
sented for  a  readjustment  of  the  charges  for  street 


lighting,  and  I  have  estimated  the  expenditures  of 
the  Lamp  Department  upon  the  basis  of  the  pro- 
posed reductions. 

I  am  also  convinced  that  economies  can  be  effected 
in  the  expenditures  for  printing,  messenger  depart- 
ment, public  grounds,  public  celebrations,  and  for 
repairs  and  alterations  on  the  school-houses  and 
other  public  buildings.  Money  for  street  widenings 
may  properly  be  included  in  a  loan  order. 

With  these  exceptions  I  have  in  the  case  of  every 
department  recommended  an  appropriation  at  least 
equal  to  the  amount  that  will  be  expended  during 
the  current  fiscal  year,  and  an  increase  over  the 
appropriations  of  1892-93  for  the  departments  of 
schools,  parks,  police,  fire,  streets,  health,  public  in- 
stitutions, registry,  and  assessors. 

The  ^  reserve  fimd  "  has  been  found  most  useful, 
and  should  be  made  sufficient  to  cover  all  possible 
expenses  which  the  presence  of  cholera  may  render 

The  city  revenues  could  be  increased  materially 
by  following  the  practice  of  other  cities  and  making 
a  moderate  charge  for  the  thousands  of  miscellaneous 
street  privileges  now  given  away  for  nothing.  Any 
attempt  to  procure  the  right  to  levy  a  special  tax 
for  the  use  of  the  streets  by  the  various  corporations 
having  vested  rights  therein  and  performing  public 
services  would  probably  fail  this  year,  as  in  the  past ; 
but  a  considerable  revenue  might  be  derived  from 


fees  for  the  street  privileges  granted  every  week  to 
individuals  and  corporations  for  their  sole  and  spe- 
cial benefit ;  and  the  large  corporations  using  the 
streets  without  charge  for  commercial  purposes 
should  make  liberal  allowances  in  the  prices  charged 
the  city  for  the  commodities  they  manufacture. 


The  next  duty  of  the  new  City  Government  will 
be  to  pass  a  loan  bill,  which,  under  the  law,  must  be 
restricted  to  permanent  improvements.  In  discrim- 
inating between  the  various  projects  of  this  character 
which  will  be  brought  to  our  attention,  we  should 
constantly  remember  that  it  is  better  to  concentrate 
expenditure  upon  improvements  of  general  benefit  to 
the  entire  community,  or  to  the  people  of  an  entire 
section  of  it,  than  to  fritter  away  the  public  funds 
upon  purely  local  objects.  The  amount  of  money 
which  can  be  appropriated  being  limited  by  law, 
the  question  in  every  case  is  not  merely  whether  a 
particular  improvement  is  in  itself  desirable,  but 
whether  it  is  the  most  desirable  of  those  suggested. 

The  present  borrowing  capacity  of  the  city  is 

I  shall  refrain  from  specifying,  except  in  a  general 

way,  the  objects  which  the  City  Council  should  bear 

in  mind  in  preparing  the  loan  order.     From  $200,000 

'  to  $300,000  will  be  required  for  new  school-houses 

and  sites  ;  about  $100,000  for  the  completion  of  the 


new  hospitals  at  Long  Island,  and  for  a  separate 
establishment  for  women  ;  and  about  $400,000  for 
additions  to  the  City  Hospital.  From  $500,000  to 
$1,000,000  could  well  be  devoted  to  street  con- 
struction, distributed  so  as  to  furnish  stone  pave- 
ments for  the  business  streets,  asphalt  pavements 
for  the  residential  sections,  and  macadamized  streets 
for  the  outlying  wards. 

_  * 

The  rest  of  the  amount  which  can  prudently  be 
borrowed  during  the  year,  should,  in  my  judgment, 
be  devoted  chiefly  to  the  opening  of  new  thorough- 
fares for  the  accommodation  of  trade  and  travel  in 
the  business  centre  of  the  city,  and  thence  in  radiat- 
ing lines  to  the  various  suburban  sections.  The  most 
important  street  widenings  for  the  business  section 
are  the  new  street  desired  for  teaming  purposes,  from 
Haymarket  square  to  Atlantic  avenue,  along  the  line 
of  Cross  and  Commercial  streets,  and  the  proposed 
widening  of  Harrison  avenue  and  Chauncy  street. 

The  chief  need  of  the  outlying  wards  is  for  broad 
and  direct  thoroughfares  leading  into  the  heart  of 
the  city.  Such  an  avenue  is  now  being  constructed 
for  Brighton;  but  the  Commonwealth-avenue  im- 
provement might  well  be  supplemented  by  widening 
Brighton  avenue  from  its  junction  with  the  former 
street  to  Cambridge  street  and  possibly  beyond. 
That  part  of  the  city  lying  to  the  west  of  the 
Back  Bay  is  fairly  well  provided  for  by  Beacon 
street  and  the  Riverway;    but  a  fiirther  means   of 


communication  with  the  business  centre  should  be 
furnished  by  widening  Huntington  avenue  and 
Tremont  street  from  Gainsborough  street  to  the 
Brookline  line. 

That  section  of  the  city  which  stands  most  in 
need  of  better  and  straighter  connections  with  the 
City  Proper  is  Roxbury  and  the  wards  lying  to 
the  south  of  it.  I  earnestly  commend  to  your 
attention  the  expediency  of  laying  out  a  new 
street,  which  shall  connect,  more  directly  than  is 
at  present  possible,  Roxbury  and  the  adjacent  ter- 
ritory with  the  City  Proper.  The  new  avenue  to 
South  Boston,  over  Congress  street  and  the  L-street 
bridge,  should  be  widened  and  opened  for  travel 
as  soon  as  possible. 

The  proper  laying  out  of  the  remoter  sections  of 
the  city  is  being  worked  out  by  the  Board  of  Survey. 

These  improvements  in  our  street  lines  will  do 
much  to  facilitate  street  travel  and  transportation, 
to  increase  real-estate  values,  and  to  place  Boston 
on  a  par  with  the  other  principal  cities  of  the 
country,  in  all  of  which  the  streets  have  been  laid 
out  by  public  authorities  upon  comprehensive 

Loans  should  also  be  authorized  outside  the 
debt  limit  for  the  completion  of  the  Sudbury-river 
basins,  and  for  the  work  of  street,  sewer,  and 
sidewalk  building. 



The  net  debt  of  the  city  on  Dec.  31,  1892,  was 
$30,539,289.97,  or  |164,068.37  less  than  on  Dec.  31, 
1891,  and  $514,207.01  less  than  on  Dec.  31,  1890. 
There  is  now  in  the  city  treasury  $881,240.53  de- 
rived from  loans  and  appropriated  for  permanent 
imprpvements.  The  additions  to  the  sinking  funds 
will  amount  to  about  $2,800,000  during  the  year.  It 
will  therefore  be  possible  to  spend  for  permanent  im- 
provements nearly  $4,000,000  without  increasing  the 
net  debt  of  the  city.  Experience  has  shown  that  it 
is  difftcult  to  expend  economically  and  judiciously 
for  permanent  improvements  more  than  this  amount 
in  a  single  year.  If,  however,  an  accelerated  rate  of 
progress  upon  our  public  works  should  result  in 
greater  expenditures,  the  excess  would  be  met  by 
covering  into  the  sinking  funds  the  proceeds  of  sales 
of  city  property  which  will  be  available  during  the 


The  main  concern  of  the  people  of  Boston  and 
their  representatives  in  this  City  Government 
should  be  the  preparation  of  our  city  to  re- 
ceive its  proper  share  of  the  increase  of  trade  and 
population  which  the  future  will  surely  bring  to  the 
cities  on  the  Atlantic  seaboard,  but  which  is  in 
danger  of  being  diverted  to  our  competitors  unless 


we  proceed  at  once  to  lay  the  foundation  for  a  great 
metropolitan  city. 

The  first  thing  to  be  secured  is  rapid  transit 
in  its  various  forms.  The  lack  of  adequate 
facilities  for  travel  in  and  out  of  Boston  is  a 
serious  drawback  to  the  prosperity  of  the  city  in 
its  commercial  and  social  life.  The  people  have 
had  time  to  digest  the  facts  and  conclusions  sub- 
mitted  in  the  report  of  the  Kapid  Transit  Com- 
mission, and  there  is  a  practically  universal  desire 
that  the  subject  should  now  be  taken  up  in  earnest 
by  the  Legislature  and  the  City  Government. 
Opinions  difier  as  to  exactly  what  should  be  done, 
interests  conflict,  and  capital  hesitates ;  but  the 
way  to  solve  the  problem  is  to  face  it,  discuss  it, 
and  to  urge  continually  upon  the  State  Legislature 
and  the  corporations  interested  the  necessity  for 
immediate  and  radical  action. 

I  have  so  frequently  argued  in  public  the  vari- 
ous phases  of  this  question  that  my  views  upon 
the  subject  must  be  familiar,  and  I  will  not  re- 
hearse them  here  except  to  call  attention  to  the 
different  divisions   of  the   problem. 

We  need  improved  terminal  facilities  for  the 
steam  railroads  entering  Boston;  the  abolition  of 
all  grade  crossings  within  the  city  limits;  the  re- 
adjustment of  travel  across  the  Charles  river, 
and  of  navigation  upon  it,  by  means  of  elevated 
drawless    bridges;    a    tunnel    and    certain    street 


widenings  for  the  benefit  of  the  surface  cars;  a 
readjustment  of  the  surface  tracks  in  the  centre 
of  the  city,  which  shall,  if  possible,  remove  all  of 
them  between  Causeway  and  Kjieeland  streets, 
except  upon  a  few  main  thoroughfares;  new  or- 
dinances regulating  travel  upon  our  narrow  streets 
and  crowded  sidewalks;  and,  finally,  a  proper  sys- 
tem of  elevated  roads. 


An  equally  important  subject  is  the  improve- 
ment of  the  health  and  beauty  of  our  city  by  the 
construction  of  public  parks,  by  public  ownership 
of  the  various  riverways,  and  by  the  abatement 
of  all  dangerous  nuisances.  Arrangements  have 
been  made  for  the  taking  of  all  the  lands  and  the 
completion  of  our  park  system  as  originally  con- 
templated .out  of  the  park  loan  authorized  by 
the  Legislature  of  1891.  We  should,  however, 
while  there  is  yet  time,  secure  certain  tracts  of 
land  lying  upon  the  confines  of  the  city  which 
can  now  be  had  for  a  very  reasonable  price, 
and  which  will  furnish  splendid  parks  for  suc- 
ceeding generations.  It  is  probable  that  about 
five  thousand  acres  in  the  vicinity  of  the  Milton 
Blue  Hills,  of  the  Muddy  Pond  woods  in  Hyde 
Park,  and  of  the  Middlesex  Fells,  could  be  pro- 
cured at  an  average  cost  of  not  over  $100  an 
acre.     If  this  territory  could  be  secured  at  an  ex- 


pense  of  $500,000  the  money  should  be  advanced 
by  the  State,  as  in  the  case  of  the  Metropolitan 
Sewerage  works,  and  the  interest  and  sinking-fund 
requirements  apportioned  among  the  several  com- 
munities benefited. 

The  improvement  of  the  banks  of  the  Charles 
and  Neponset  rivers  must,  it  seems  to  me,  be  se- 
cured by  public  ownership  in  a  similar  manner. 

The  two  plants  for  the  treatment  of  epidemic 
diseases,  established  in  1892,  should  enable  the  city 
to  cope  successfiilly  with  the  threatened  invasion 
of  cholera  this  year;  but  the  selfish  obstinacy  of 
speculative  land-owners  has  prevented  the  Board 
of  Health  from  abating  all  the  nuisances  and  pest- 
holes which  exist  in  various  sections  of  the  city,  and 
still  continue  to  be  a  menace  to  the  public  health. 
Additional  powers  should  be  granted  to  the  Board 
of  Health,  so  as  to  enable  them  to  compel  the  clean- 
ing of  private  ways  and  alleys;  and  the  owners  of 
tide-water  flats  should  be  obliged  to  fill  them  to 
grade  12. 

It  will  be  necessary  within  the  next  ten  years  to 
procure  an  entirely  new  source  of  water-supply. 
I  would  recommend  that  this  subject  also  be  treated 
from  a  metropolitan  standpoint,  and  carefully  in- 
vestigated by  a  State  commission  of  engineers. 



I  am  well  aware  that  the  magnitude  of  these 
suggestions  frighten  many  persons,  and  that  the 
diflBlculties  surrounding  their  execution  seem  to 
others  insurmountable.  I  have,  however,  sufficient 
confidence  in  the  enterprise  and  public  spirit  of 
the  citizens  of  Boston  to  feel  convinced  that  when 
once  fully  aroused  to  the  necessity  for  action  they 
will  not  allow  either  financial  difficulties  or  cor- 
poration influence  to  prevent  their  obtaining  the 
things  which  are  essential  to  the  growth  and 
prosperity  of  our  city.  I  do  not  believe  that 
the  undertakings  which  have  been  carried  out  in 
.  other  cities  of  this  country,  with  which  Boston 
must  compete  for  commerce,  wealth,  and  popu- 
lation, are  impossible  of  accomplishment  here. 
I  am  unwilling  to  concede  that  the  railroad  com- 
panies entering  Boston  cannot  be  induced  to  im- 
prove their  terminal  facilities.  What  is  being 
done  in  Baltimore,  in  Philadelphia,  in  Jersey 
City,  and  in  Chicago,  can  be  accomplished  here. 
Selfish  land  schemers  will  seek  to  prevent  the  de- 
velopment of  suburban  territory  upon  proper  street 
lines;  but  yjhy  should  the  streets  of  every  other 
large  city  in  this  country  be  laid  out  by  public 
authorities  upon  public  lines,  and  constructed 
practically  without  expense  to  the  community, 
while      in      Boston     the      real-estate      speculator 

•  > 


is  allowed  to  loot  the  city  treasury  for  wS 
private  benefit  ?  Those  who  fear  that  elevated 
railroads  cannot  be  built  in  Boston  without  ap- 
propriating the  streets  and  confiscating  the 
rights  of  abutting  owners  should  study  the  recom- 
mendations of  the  Kapid  Transit  Commission,  or 
visit  the  city  of  Chicago,  where  capital,  partly 
raised  in  Boston,  has  not  hesitated  to  invest  in 
elevated  railroads  built  entirely  upon  private 
land.  If  the  ten  or  twelve  millions  needed  to 
provide  new  and  wide  thoroughfares  of  travel 
across  the  congested  section  of  the  city,  seem  a 
large  sum,  it  should  be  recollected  that  this 
amount  is  less  than  one-half  the  expenditure  for 
street  widenings  in  the  few  years  succeeding  the  ' 
close  of  the  Civil  War,  less  than  one-third  of  the 
amount  that  the  Cochituate  water-works  will 
cost  when  completed,  and  only  about  one-quarter 
as  much  as  has  been  expended  for  street  widen- 
ings since  the  incorporation  of  our  city  in  1822. 


It  must  be  obvious  that  Metropolitan  Boston  will 
need  a  new  and  larger  City  Hall,  and  that  the  longer 
the  building  of  it  is  delayed  the  more':' its  site  will 
cost;  unless  the  Public  Garden  is  selected  for  the 
purpose.  The  top  of  Beacon  Hill  still  seems  to  me 
the  most  appropriate  site  ;  and  I  would  recommend 
that  early  action  be  taken  in  the  matter. 



The  present  City  Government  is  confronted  by 
some  of  the  most  important  problems  which  have 
arisen  since  the  foundation  of  the  city.  Notwith- 
standing their  magnitude  and  number,  I  beUeve  that 
the  people  expect  their  chosen  representatives  to 
attack  these  problems  in  earnest,  to  consider  them 
with  care,  and  then  to  take  such  action,  by  petition 
to  the  State  Legislature,  or  otherwise,  as  will  best 
promote  the  interests  of  the  city. 

With  a  desire  to  secure  prompt  and  eflfective 
action  by  the  City  Government,  I  venture  to  sug- 
gest a  readjustment  of  the  joint  committees  of  the 
City  Council.  These  committees  are  now  ap- 
pointed by  departments,  —  that  is,  one  for  each 
division  of  executive  work  :  a  practice  which  was 
necessary  before  the  charter  amendments  of  1885, 
but  which,  since  the  passage  of  that  law,  has  failed 
to  furnish  to  the  members  of  the  City  Council  fiill 
opportunities  for  the  discharge  of  the  duties  they 
are  elected  to  perform.  It  would  be  better  to 
appoint  the  committees  by  subjects  rather  than 
by  departments,  and  I  would  suggest  that  a  joint 
committee  be  appointed  for  each  of  the  various 
matters  alluded  to  in  this  message. 

The  City  Government  of  1893  will  have  done 
its  duty  by  the  people  if  it  shall  so  contrive 
that  the  moneys  raised  by  taxation    and  by   loan 


shall  be  appropriated  for  purposes  of  general  util- 
ity, and  expended  with  economy;  and  shaU  give 
its  energies  and  thought  to  the  solution  of  the 
greater  problems  upon  which  the  future  of  Boston 
is  dependent. 

Let  us  enter  upon  this  work  in  a  spirit  devoid 
of  partisanship,  political  or  local,  and  with  a  deter- 
mination to  serve  the  interests  of  the  whole  com- 





City  of  Boston,  OmoE  of  the  Mayor, 

City  Hall,  January  2,  1893. 

To  the  Honorable  the  City  Council: 

Gentlemen  :  The  amount  that  the  city  may  appropriate 
from  revenues  and  taxes  for  the  fiscal  year  1893-94  is 
$13,379,627,  procured  as  follows: 

Department  estimates  of  income     . 
Corporation  tax,  estimated  receipts 
Liquor  licenses,  estimated  net  receipts 
Estimated  cash  on  hand  Feb.  1,  1893 
Product  of  $9  law 
Extra  for  county  expenses     . 

Total  for  department  expenditures 
Interest  on  city  and  county  debt,      $1,671,000 
Sinking  funds  and  principal  of 

debt 1,239,219 





Total $13,379,627 



I  transmit  herewith  the  department  estimates  of  expen- 
ditures ;  and  my  own  recommendations  in  respect  thereto 
are  as  follows : 




for  ISSiMM. 












Assessing  Department 

Auditing  Department 

Board  of  Aldermen,  salaries 

Board  of  Aldermen,  contingent 

Board  of  Aldermen,  soldiers'  re- 
lief      .... 

City  Clerk 

City  Council,  contingent  . 

City  Council,  incidental    . 

City  Messenger 

Clerk  of  Committees 


Common  Council,  clerks'  ex- 

Common  Council,  contingent 

Engineering     . 

Ferry  Department    . 

Fire  Department 

Health  Department  . 

Hospital  Department 

Inspection  of  Buildings     . 

Inspection  of  Milk  and  Vinegar, 

Inspection  of  Provisions    . 

Amounts  carried  forward,  $2,238,130      $2,283,562 








*  30,000 





























Amounts  brought  foi^wardj 
Lamp    Department,    general 

expenses   .         •         .         • 
Lamp   Department,   gas  and 

electric  light  companies 
Lamp    Department,    naphtha 

lighting     .... 
Lamp  Department,  new  work. 
Law  Department 
Laying  Out  Streets  Department, 
Library   . 
Markets  • 
Mt.  Hope 
Printing  • 
Public  Buildings,  armories 

Election  expenses 

Rents  . 

Salaries        •         .         .    \ 

Alterations  and  repairs  .  / 
Public  Buildings,  schools  • 
Public  Celebrations  . 
Public  Grounds 
Public  Institutions    . 
Begistration  of  Voters 
Registry  Department 

Approprlatiooi    BecommeDdatioiif 
for  1802-98.  for  1803-04. 

$2,238,130      $2,283,562 














Amounts  carried  forward,  15,594,100   $5,501,617 




for  Ig92-t3. 

for  1898-M. 























ATnounts  brought  forward y 

Relief  of  Poor  .... 

Reserve  Fund  • 

School  Committee    . 

Sealer  of  Weights  and  Measures, 

Sinking-Fund  Department 

Street  Department,  Central 
Office  ..... 

Street  Department,  Bridge  Div., 

Street  Department,  Cambridge 
Bridges  Div. 

Street  Department,  Paving  Div., 

Street  Department,  Sewer  Div., 

Street  Department,  Street-Clean- 
ing Div 300,000  300,000 

Street  Department,  Street- 
Watering  Div.      .         .         .  100,000  100,000 

Street  Department,  Sanitary 

Surveying         .... 

Treasury  .... 

City  Debt,  sinking  fund    . 

City  Debt,  interest  . 

County  Debt,  sinking  fund  and 
principal       .... 

County  Debt,  Interest 

House  of  Correction 

County,  general  expenses . 



















Total $13,600,420    $13,379,627 


Water-Income  Department  : 
Cochituate  Water- Works    . 
Mystic  Water-Works 



for  1892-8S. 

for  189S-M. 







Water-Supply  Department : 
Cochituate  Water-Works : 

Current  expenses        .         .         $355,000         $370,000 
Interest     ....  811,017  831,748 

$1,166,017      $1,201,748 

Mystic  Water-Works : 

Current  expenses       .         .         $127,750   $128,000  00 
Interest    ....  19,257       16,827  50 

$147,007    $144,827  50 

Bespectfully  submitted, 

N.  Matthews,  Jr., 





City  and  County  Debt. 

Gross  funded  debt,  Dec.   81,   1891  .         .         .  $56,242,745  90 
Add  funded  debt  issued  in   1892     .         .         .      2,977,800  00 

$59,220,545  90 
Deduct  funded  debt  paid  in   1892    .         .         .      2,136,982  71 

Gross  debt,  Dec.   31,   1892       ....  $57,088,563  19 
Sinking  funds,  Dec.  31,  1891     .  $25,518,981  58 
Receipts  during   1892         .         .      2,874,790  38 

$28,393,771  91 
Payments  during  1892        .         .      2,164,275  05 

$26,229,496  86 
Bonds,    betterments,    etc.,    the 
payment  of    which   is  pledged 
to  the  payment  of  debt : 

Bonds  .  .  .  $3,587  00 
Betterments,  etc.  .  157,878  27 
Sidewalk    assess- 

ments,  chap.  401, 

Acts  of  1892  .  84,160  84 
Sewer  assessments, 

chap.    402,    Acts 

of  1892   .    .   69,155  25 

314,776  36 

Total  redemption  means  Dec.   31,  1892    .  26,544,278  22 

Net  debt,   Dec.   31,  1892 $80,539,289  97 



Gross  debt,   Dec.   81,   1892 
Gross  debt,  Dec.   31,   1891 


Net  debt,  Dec.  81,  1891  . 
Net  debt,  Dec.  81,  1892  . 


.  157,088,568  19 
.    56,242,745  90 

$840,817  29 

.  $30,708,858  34 
.    80,639,289  97 

$164,068  87 

City  debt,  iDclnding  balance  of  debts  assumed 

by  acts  of  annexation $36,439,789  21 

County  debt 8,445,000  00 

Cochituate  water  debt 16,758,778  98 

Mystic  water  debt  440,000  00 

$57,088,568  19 







































Public  Park  Oonttractlon  .  .  . 
Baffolk  Conoty  Conrt-Honae' . 

Harvard  Bridge 

Pablic  Park  Lands 

Sewer,  Tremont  at 

Stony  Brook  Improvement  . 

Pablic  Park  Lands 

New  Library  Baildlng    .... 
W.  Chester.park  Extension .  . 

Congresi-st.  and  Oliver-st.  Ex- 

Improved  Sewerage 

Pablic  Parks,  Charlestown  .  . 

Public  Parks 

New  Library  Building    .  .  .  . 

Laying  Out  and  Oonstruetlon  of 

Suffolk    County  Oourt-House 


$2,600,000  00 

<  76,000 
»  75,000 


Date  of 

*  500,000  00 
600,000  00 

200,000  00 

>  8,500,000  00 
1,000,000  00 

100,000  00 

June  21, 1886 
Mar.  21, 1887 
May  18, 1887 
May  26, 1887 
June  11, 1887 
June  16, 1887 
May  23,  1888 
Mar.  1,1889 
April  12, 1880 

AprU  26, 1880 

May  0,  1889 

May  6  and 
June  28, 1890 

May   7,  1891 

May  11,  1891 

May    9,  1892 


$2,500,000  00 

2,600,000  00 

250,000  00 

400,000  00 

600,000  00 

600,000  00 

1,000,000  00 

600,000  00 

200,000  00 

1,000,000  00 
100,000  00 

256,800  00 

50,000  00 

^  $2,500,000  In  addition  to  the  cost  of  land.    Cost  of  land,  $1,056,469.69;  $2,706,000  author- 
ized by  City  Coancil. 

*  Never  approved  by  City  ConncU. 

a  Entire  loan  authorized  by  City  Council;  only  $1,000,000  issued. 

*  Not  exceeding  $1,000,000  each  year  — debt  authorized  in  1891  ($500,000)  inside  of  debt 
limit:  debt  authorized  hereafter  will  be  outside  of  debt  limit. 



Loans  issued  in  1892. 

Date  of  Order. 

•  •  • 

Oct.  26, 1801 
Dee.  6, 1891 

Dec.  10, 1891    .  .  . 

Dec.  24, 1891    .  .  . 

Jul.  28, 1892    .  .  . 

■  •  * 

U        C«  II 

■  •  • 

May  20, 1891    .  .  . 

Not.  18, 1889   .  .  . 

ICayaO,  1801    .  .  . 

May  24, 1802    .  .  . 

Aug.  26, 1802  .  .  . 

July  11, 1802    .  .  . 

•      •      • 

Oct.  24, 1801 
Sept.  80, 1802  .  .  . 

Aug.  24, 1802  .  .  . 
Oct.  7, 1892  .  :  .  . 



L-et  Bridge 

Commoowealth  ave.,  OonatracUon  . 

Doroheeter  ave.,  Paving,  Wards  16 
and  24 

Allston  Bridge 

ImproYcd  Sewerage  .  .  .  . 
Extension  of  Mains  .  .  .  . 
Street  Constmction  Act  .  . 
Additional  Supply  of  Water 

Public  Parks 

Various  Municipal  Purposes 
Suffolk  County  Conrt-House 

•     •     •     • 

Suffolk  County  Oourt-Honse,  Fur- 

Library  Building,  Dartmouth  st. 

Buildings,  Gallop's  Island  and  Swett 

New  Lunatic  Hospital 

Laying  Out  Streets  Department 

Included  in 
Debt  Limit. 

Inside  Debt  Limit  .  .$1,992,800  00 
Outside  **        **        .  .       986,000  00 

$2,977,800  00 

$841,000  00 
180,000  00 
210,000  00 

126,000  00 

90,000  00 

100,000  00 

206,800  00 

680,000  00 

60,000  00 
46,000  00 
16,000  00 

$1,902,800  00 

Outside  Debt 

$100,000  00 

286,000  00 
800,000  00 

200,000  00 

60,000  00 
100,000  00 

$986,000  00 



Loans  authorized  but  not  issued,  Dec.  31,  1892. 

Data  of  Order. 

Nov.lS,lS89    . 
May  20, 1891    . 

May  ao,  1891  . 

Oct.  24,1891.  . 

Dec.  5, 1891  .  . 

Jan.  2,  1892 .  . 

Jan.  23, 1892.  . 

Jane  1,1892.  . 

July  11, 1892  . 

Aug.  25,1892  . 

May  24, 1892.  . 

Ang.24,1892  . 

Oct.  7, 1892  .  . 

Oct.  7,1892  .  . 


Additional  Sapply  of  Water 

l4iyuig   Out  and  Conttmction  of 

labile  Parks 

Library  Balldlng,  Dartmontb  st.  .  . 

L-et.  Bridge 

City  Hospital  Improvements  .  .  .  . 

Improved  Sewerage 


Debt  Limit. 

Snffolk  County  Conrt-Honse,  Far- 
Dishing .  . 

Baffolk  Connty  Conrt-Hoose  .  .  .  . 
Various  Manicipal  Parposes  .  .  .  . 

New  Lunatic  Hospital 

Laying  Out  Streets 

City  Hospital,  Additional  Land .  .  . 

Inside  Debt  Limit   . 
Outside "        " 

$1,686,426  00 

.    3,858,600  00 

$5,544,925  00 

$248,200  00 

80,000  00 
130,500  00 
150,000  00 

919,725  00 

155,000  00 

10,000  00 

42,000  00 

$1,686,425  00 

Debt  Limit 

$227,600  00 

2,600,000  00 
900,000  00 

76,000  00 

60,000  00 
106,000  00 

$3,868,500  00 

Balances  from  Loans,  Dec.  31,  1892. 

Improved  Sewerage 

Laying  Out  and  Constraction  of  Highways 
Bedford  and  Kingston   streets  .... 

Forbes  street 

Harvard  street 

Jerome-place  extension 

Norfolk  street 

$50,032  45 
4,462  45 
15,750  00 
2,332  26 
1,000  00 
3,000  00 

Amount  carried  forward^ 

$81,077  16 








Amount  brought  forward^ 
Park    street,    Charlestown,    widening    and   oon- 

stmcting .... 
Talbot-avenae  extension 
Ward  street 

Widening  Commercial  street 
Pablic  Parks 

Pnblic  Park  Constmction  . 
Pablic  Parks,   Charlestown 
Public  Park  Lands 
Elevator,  City  HaU  . 
Engine-honse,  Ashmont 
Fire    Department    Building    and    Site, 

Headquarters,  etc. 
Hospital  for  Horses 
Library  Building,  Dartmouth  street  . 
Police  Station-honse,  Brighton  . 
''  "  No.  13,    Land  and 

tion  to 
Ward-room,  Ward  2,  Enlargement  of 
Addition  to  House  of  Lidustry 
Barn,   Long  Island     .... 
Electric-lighting  Plant,  Long  Island 
Parental  School  for  Boys     . 
Austin  Primary  School-house,  building 
Cook  School-house,  enlargement  of  yard 
Grammar  School-house,  Hillside  District 
*'  *'  Mt.  Vernon  District 

.    *'  "  North  Brighton,  site 

"  *«        buUding, 

Pierce  District 






Amount  carried  forward^ 

$81,077  16 

6,600  00 

2,467  00 

700  00 

1,796  88 

86,366  86 

267  78 

101,661  96 

297  26 

HI  65 

4,968  87 

8,102  98 

88,250  86 

9,970  49 

2,849  75 

6,684  10 

7,444  99 

4,952  69 

13,065  71 

1,883  47 

6,307  53 

990  00 

1,271  05 

95  39 

945  96 

1,469  82 

405  00 

3,358  91 

832  95 

$398,470  86 



Amount  brought  forward^ 

Lyceum  Hall,  Dorchester 

*•  "  "        to  fit  for  primary  school, 

Mechanic  Arts  High  School 

Primary  School-house,  Adams  District 

Beech  street,  site 
Lot,  Blossom  street 
Bunker  Hill  District 
Dillaway   District,  build 

ing      . 
Emerson  District     . 
Frothingham  District 

land     . 
Gardner  street,  site 
George  Putnam  District 
Hillside  District 
Lowell  District 
North  of  Broadway 
Oak  square,  etc. 

AUston  bridge      .... 

L-street  bridge    .... 

Rebuilding  bridges  to  Watertown 

Beacon  street      .... 

Brent  street         .... 

Chardon  street     .... 

Commonwealth-avenue  Construction 

Conant  street,  macadamizing 

Davis  street,  asphalt   . 

Decatur  street.  Ward  16,  asphalt 

Dorchester  avenue,  paving.  Wards  15  and  24 

Dorchester   street,  Ninth    street    to    Broadway, 

Amount  carried  forward^ 





$393,470  35 

10,000  00 

714  73 



776  91 

5,595  00 

2,654  38 



7,913  83 















34  52 

22,945  03 





4,848  85 



349  45 











2,935  35 

$665,468  40 



Amount  brought  forward^ 
Eighth  street,  L  to  O  street,  edgestones,  etc. 
Florence  street,  asphalt 
Harbor  View  street 
Houghton  street,  macadamizing  . 
L  street,  grading,  etc. 
La  Grange  street 
Lexington  avenue 
Sawyer  avenue    .... 
Second    street,    Dorchester    street   to 


Smith  street,  construction    . 

Street  Improvements,  Aldermanic  Dist 















Ward  12 
Tuttle  street 
West  Newton  street,  between  Washington  street 

and  Shawmut  avenue,  asphalt  blocks 
Sewer,  between  Roslindale  and  West  Boxbury 
Sewers,  Brighton 
Sewer  outlets,  D  street 
Sewer  outlets.  East  Boston 
Sewers,  Roxbury 
Sewers,  Savin  Hill  District 
Sewers,  South  Boston 

Sewers,  Ward  23,  Washington  street,  etc.    . 
Sewers,  Westville,  Freeman,  and  Charles  streets 
Stables  and  sheds,  Brighton 


Additional  supply  of  water  .... 
High  service 

Amount  carried  forward^ 

$665,468  40 











3,697  00 









































4,200  50 



40,470  48 

$799,779  79 



Amount  brought  forward^ 

Protection  of  water-supply  . 
Suffolk  County  Coort-Hoose 

*'  '*  **  famishing 

Jackson  street 

Howell  street 

Buildings,  Gallop's  Island  and  Swett  street 
New  Lunatic  Hospital 
New  buildings,  City  Hospital 
Congress-street  bridge,  guard 

$799,779  79 

80,000  00 

12,096  04 

744  59 

1,600  00 

1,500  00 

14,622  26 

10,500  00 

9,963  54 

534  31 

$881,240  53 

Jaices  H.  Dodge, 

City  Auditor. 





Assessors'  Office,  Citt  Hall, 

Boston,  Dec.  31,  1892. 
Hon.  Nathan  Matthews,  Jr., 

Mayor  of  the  City  of  Boston  : 

In  conformity  with  the  provisions  of  the  Reyised  Ordi- 
nances, we  herewith  transmit  a  statement  of  the  Assessors' 
valuations  for  the  preceding  five  years,  and  of  the  abatements 
thereon  allowed  previous  to  the  thirty-first  day  of  December; 
also  the  average  of  such  valuations  reduced  by  such  abate- 

Year.                                                 Valnations. 


1888       .                  .      $765,855,048  39 


1889       .         .                 795,941,048  71 


1890       .         .         .        822,456,800  00 


1891       .         .         .        855,413,414  62 


1892       .                  .        895,987,904  00 


$4,135,154,210  72 


Less  abatements,          38,588,200  00 

$4,096,566,010  72 

Divided  by  5       .      $819,313,202  00 

Respectfully  submitted, 

For  the  Board  of  Assessors, 

Joshua  S.  Dunoexee, 





CoLLBcnNG  DBPABTMBirr,  City  Hall, 

Boston,  Dec.  31,  1892. 
Hon.  Nathan  Matthews,  Jr., 

Mayor  of  the  City  of  Boston  : 

Sib:  The  assessineiits  oommitted  to  the  Collector  for  the 
financial  year  beginning  Feb.  1,  1892,  not  including  Cochituate 
and  Mystic  water  rates,  amount  to  $13,584,568.56.  Of  this 
amoant  there  has  been  to  Dec.  31,  1892,  $11,464,079.15  collected, 
$105,044.61  abated,  and  $2,015,444.80  remains  uncollected. 
This  includes  the  State,  City,  and  County  taxes,  $11,656,484.92, 
of  which  $9,903,985.31  has  been  collected,  $85,985.07  abated ; 
leaving  $1,666,514.54  unpaid,  and  the  Bank  tax,  $841,176.75, 
all  of  which  has  been  paid. 

The  Cochituate  water  rates,  assessed  on  the  first  of  January, 

1892,  and  additional  and  meter  rates  assessed  during  the  year, 
amount  to  $1,576,967.89.  There  has  been  paid  of  these  rates 
$1,366,859.52;  abated,  $16,808.17;  leaving  $193,300.20  unpaid. 

The  Mystic  water  rates  for  the  same  time  stand  as  follows : 
Assessed,  $387,079.50;  paid,  $374,048.25;  abated,  $9,965.48; 
unpaid,  $3,065.77. 

There  has  also  been  received  of  the  Cochituate  water  rates  for 

1893,  $18,176.25,  and  of  the  Mystic  water  rates,  $1,186.50. 

The  total  receipts  from  all  sources  from  Feb.  1,  1892,  to  Deo. 
31,  1892,  inclusive,  amount  to  $16,667,926.06. 

A  general  summary  of  the  accounts  shows  that  the  balance  of 
bills  and  assessments  outstanding 


Jan.  1,  1892,  was $2,455,805  17 

The  asseBsments  from  Jan.  1,  1892,  to  Dec.  31, 

1892     . 15,640,482  14 

Cash  deposits  from  Jan.  1,  1892,  to  Dec.  31, 

1892 2,771,661  49 

Total  amount  charged  to  Collector  $20,867,448  80 

Of  this  amount  the  Collector  is  credited  with 

abatements $294,629  79 

The  Collector  is  credited  with  cash  paid  City 

Treasurer 17,795,279  08 

Balance  uncollected 2,777,539  93 

$20,867,448  80 

The  following  statement  shows  the  amount  of  the  Assess- 
ors' warrants  for  two  years : 

1891-92 $10,860,874  76 

1892-93 11,656,484  92 

and    the    collections,    abatements,    and    amounts    outstanding 
thereon  to  December  3l8t  of  the  respective  years: 

1891-92.     Collected     .  .     $9,030,534  35  or  83.1% 

Abated        .         .         .  61,089  22  '*       .6% 

Uncollected         .  1,769,251  19  "    16.3% 

$10,860,874  76 

1892-93.     Collected    .         .         .     $9,903,985  31  or  85.  % 
Abated       .        .  85,985  07   **       .7% 

Uncollected  .       1,666,514  54   <<  14.3% 

$11,656,484  92 

Respectfully  submitted, 

James  W.   Bicker, 

OUy  OoUector. 




CiTT   OP    Boston, 
BoABD  OF  Commissioners  of  Sinking-Funds, 

Cnr  Hall,  Jan.  2,  1893. 

Hon.  Nathan  Matthews,  Jr., 

Mayor  of  the  Oity  of  Boston : 

Sir  :  In  accordance  with  the  provisions  of  chap.  98, 
Acts  of  1891,  it  is  estimated  that  the  amount  which  the 
city  will  be  able  to  borrow  daring  the  present  municipal 
year  within  the  debt  limit  established  by  law  is  $3,910,618, 
as  per  schedule   annexed. 

A.  Davis  Weld, 
Henrt  R.  Reed, 
Samuel  Johnson, 
Joseph  H.  Gray, 
Chas.  H.  Allen, 
Nathaniel  J.  Rust, 
Board  of  Gommissioners  of  Sinking-IfSinds, 

Alfred   T.  Turner, 

City  Treasurer. 
James  H.  Dodoe, 

City  Auditor, 



Total  Debt,  City  and  County,  Dec.  81,  1892 
LeM  Special  Loans  (outside  of  limit) 

Cochitaate  Water  Debt 

Mystic  Water  Debt 

County  Debt  (outside  of  limit) 

.    $57,083,568  19 

f  7,050  000  00 

16,768.778  98 

440,000  00 

2,650,000  00 

26,898,778  98 

•80,184,789  21 

Sinking  Funds 

Less  Cochituate  Water  Sinking 
Fund $6,966,458  96 

Mystic    Water  Sinking  Fund,      578,082  28 

Public  Park  Construction  Sink- 
ing Fund       ....       888,227  88 

Special  Loans  Sinking  Fund,       416,560  72 

County  Court-House  Sinking 
Fund 158,962  62 

$26,229,496  86 

8,503,257  46 

17,726,239  40 

Debt,  excluding  Loans  outside  of  limit,  and  deducting  Sink- 
ing Funds  for  said  debt $12,458,549  81 

Two  per  cent,  on  $790,086,144,  average  yaluation  for  flye 

years,  less  abatements $15,800,722  88 

Debt  as  above 12,458,549  81 

$8,842,178  07 

Average  valuation  for  five  years,  less  abate- 
ments to  Dec.  81,  1892        .        .        .        . 

Average  valuation  for  five  years,  less  abate- 
ments to  Dec.  81,  1891  .... 

Two  per  cent,  on  increase 

Laterest  on  Investments,  Jan.  1,  1898 



$29,277,058    585,541  00 

75,491  00 

Right  to  borrow,  Jan.  1.  1893 $4,008,205  00 



Bight  to  borrow 

}  Jan.  1,  1893      . 

.    $4,003,205  00 

April    1,  1893. 

Interest  on  Investments 

170,000  00 

July     1,  1893. 

70,000  00 

Oct.      1,  1893. 

155,000  00 

"        1,  1893. 

Debt  paid  from  Appropriation 

17,000  00 

Nov.    1,  1893. 

Appropriation  for  Debt 

1,026,838  00 

"        1,  1893. 

Interest  on  Investments 

17,000  00 

Dec.  31,  1893. 

Sterling  Debt  Redeemed    . 

80,000  00 

"      31,  1893. 

Interest  on  Bank  Deposits 

58,000  00 

$5,597,043  00 

Less  loans  authc 

)rized,  but  not  negotiated    • 

.      1,686,425  00 

$3,910,618  00 



m    ■> 









JANUARY    I,   1894. 

Rockwell  and   Churchill,  City   Printers. 


'-  -  'f '. 








JANUARY    I,    1894. 



%.     1680.  ^^ 





In    BoABD    of    AliDEBMEN, 

January   1,    1894. 

Orderedj  That  His  Honor  the  Mayor  be  requested  to 
furnish  the  City  Council  with  a  copy  of  his  inaugural 
address  for  pubUcation. 

Passed.  Sent  down  for  concurrence.  January  1,  came 
up  concurred. 

A  true  copy. 

Attest : 

John  M.   Galvin, 

City  Clerk. 


To  the  Honorable  the  City  Council: 

Gentlemen:  The  first  business  of  the  city 
government  of  1894  will  be  the  consideration 
of  the 


for  the  fiscal  year  1894-5. 

The  city  is  authorized  by  St.  1885,  Ch.  178, 
to  raise  annually  by  direct  taxation  enough 
money  to  meet  the  estimated  requirements  of  the 
year  for  interest  on  all  loans  for  city  and 
county  purposes,  and  for  the  accumulation  of  a 
sinking  fund  sufficient  to  pay  the  funded  debt 
of  the   city   and  county  at  maturity. 

The  amounts  estimated  as  required  and  duly 
appropriated  for  interest  and  sinking-fund  pay- 
ments on  account  of  these  loans  during  the 
past  nine  fiscal   years,  have  been: 


For  SlsklDg  Fand 

ToUl  Debt 


For  Interest. 

and  Debt  Pasrmenta. 


1885-86  .     .     , 




1886^7  .     .     , 




1887-88  .     •     , 




1888-89  .     .     , 




1889-90  .     .     , 




1890-91  .     .     . 




1891-92  .     .     . 




1892-93  .     .     . 




1893-94  .     .     . 




1894-95  .     .     , 




The  city  is  allowed  by  the   same  law  to  levy 

an    annual    tax    for    general    municipal    purposes 

equivalent  to  nine  dollars  on  every  thousand    of 

the  average  of  the  assessors'  valuations  of  the 
taxable    property    of  the    city  for  the    preceding 

five  years,  less  abatements  to  the  thirty-first  day 
of  December  preceding;  and  by  St.  1887,  Ch. 
281,  authority  was  given  to  add  to  the  annual 
tax-levy  the  sum  of  $425,000  for  county  pur- 

The  following  table  shows  the  revenue  of  the 
city  from  year  to  year  under  the  nine-dollar 
law    of   1885: 


Average  yalaations  for  flye  years,  less 
abatements  to  December  31. 


9661,011,076  00 
670,035,172  00 
678,768,000  00 
694,078,430  00 
711,071,286  00 
733,736,943  00 
761,236,068  00 
790,036,144  00 
819,313,202  00 
850,076,262  00 

Nine  dollars  on  a  thousand  amounted 


For  1885-86  .... 
1886-^7  .... 
1887—88  .... 

1889-90  .... 
1890-91  .... 
1891-92  .... 
1892—93  • . . . 
1893-94  .... 
1894H95  ... 

$5,949,099  68 
6,030,316  55 
6,108,867  00 
6,246,705  87 
6,399,641  57 
6,603,682  49 
6,851,124  61 
7,110,325  30 
7,373,818  00 
7,650,686  35 

The  city  also  receives  a  large  revenue  from  liquor 
licenses  and  other  miscellaneous  sources,  estimated 
by  the  Auditor  for  the  coming  year  at  $2,490,000. 

The  product  of  the  nine-dollar  law,  the  addi- 
tional $425,000  allowed  by  the  Act  of  1887,  and 
the  miscellaneous  revenues  of  the  city  make  to- 
gether the  total  annual  income  of  the  city  and 
county  available  for  general  department  expendi- 
tures. This  amount,  added  to  the  interest  and 
sinking-fund  requirements  for  the  year,  makes  the 
full  amount  which  the  city  government  can  ap- 
propriate for  the  annual  expenditures  for  the  city 
of  Boston   and  the  county  of   Suffolk. 

The  operation  since  1885  of  these  limitations 
is  shown  in  the  following  table: 






I II R  ^  4 II J 

i  I  i.  I  S  II  11 

^  2.  S  It  2.  I  I.  S.  A 
t  A  2  I  §  I  S  i  I  I 




s  S  §  R  I  I  §  I  I  § 


00     00 

00       Ok 

o     e 

1 1  §  i I II  1 1  I 

•  \  8.  n  '.  '•^  3.  •.  •-.  "*- 

M       M       e<      M       M       C«      M 






I  §  §  I  S'§  S.  II  I 

i:  1 1 1  i  i  s.  A  1 1 



It  will  be  noticed  that  while  the  nine-dollar 
law  will  produce  $276,868  more  from  taxes  in 
1894-5  than  in  1893-4,  yet  the  miscellaneous  rev- 
enue of  the  city,  which  varies  considerably  from 
year  to  year,  is  expected  to  fall  below  the  revenue 
for  1893-4  by  $266,590,  leaving  available  for  the 
department  expenditures  of  1894-6  only  $10,278 
more  than  in  1893-4.  This  decline  in  revenue  is 
due  partly  to  the  fact  that  no  sales  of  city  property 
have  been  made  since  February  1, 1893,  and  partly 
to  the  slowness  with  which  the  taxes  for  the  year 
are  being  paid. 

I  shall  submit  to-day  my  recommendations  con- 
cerning the  appropriation  order  for  the  coming 
year,  together  with  the  department  estimates. 
These  estimates  and  recommendations  are  sug- 
gestions merely.  The  sole  power  to  originate 
appropriations  is  vested  in  the  city  council; 
and  that  body,  while  it  cannot  appropriate  more 
in  the  aggregate  than  the  total  named,  can  by 
a  two-thirds  vote  in  each  branch  distribute  the 
money  among  the  different  departments  as  it 
sees  fit. 

After  the  appropriation  order  has  been  passed,  it 
will  be  incumbent  upon  the  several  departments  to 
observe  carefully  its  terms  and  limitations.  The 
city  has  lived  within   its  income   during   the    past 


three  years;  no  money  has  been  borrowed  since 
May  1,  1891,  for  ordinary  department  expenses; 
and  the  accounts  for  the  present  fiscal  year  will 
show  a  cash  surplus  at  the  close  of  business  on 
the  thirty-first  of  this  month.  The  heads  of 
departments  should  understand  that  no  return  to 
the  practice  of  borrowing  money  for  ordinary 
department  expenditures  will  be  permitted,  and 
that  they  must  keep  their  expenditures  within 
the   appropriations  granted  by  the  city  council. 

THE    TAX    KATE. 

The  tax  rate  for  1893  for  city  and  county  pur- 
poses was  the  lowest  since  1876;  but  the  rate 
for  State  purposes  was  the  highest  since  1888. 
It  is  earnestly  to  be  hoped  that  the  legislature  of 
1894  will  restrict  its  expenditures  to  a  total  con- 
siderably below  the  figures  of  1893.  If  the  direct 
State  tax-bill  does  not  exceed  $1,750,000  (the 
amount  levied  in  1892),  and  if  the  annual  increase 
in  valuations  is  as  much  as  during  the  past  few 
years,  the  tax  rate  for  1894  for  city,  county,  and 
State  purposes  will  be  less  than  last  year.  It  is 
not  unlikely,  however,  that  the  valuations  for  1894 
will  be  no  more,  and  perhaps  even  less,  than  those 
for  1893;  in  which  case  the  tax  rate  will  be  about 
what  it  was  last  year,  or  possibly  somewhat  higher. 



The  condition  of  the  funded  debt  of  the  city, 
including  all  water  and  county  loans,  on  Decem- 
ber Slst  of  every  year  since  the  annexations  of 
1874,  is  shown  in  the  following  table: 





GroM  D«bt. 

$48,474,841  96 
48,886,882  24 
44,958,822  80 
48,854,444  06 
41,809,588  81 
48,022,816  20 
41,108,750  60 
40,018,598  02 
41,105,577  88 
42,544,128  96 
42,981,984  91 
48,416,945  84 
46,887,887  86 
48,682,428  58 
48,576,569  29 
51,185,741  09 
55,440,861  06 
56,242,745  90 
57,088,568  19 
55,881,685  15 

Meant  of 

$15,661,906  78 
16,881,626  50 
16,681,789  84 
16,498,979  12 
15,625,411  89 
16,925,088  15 
14,445,294  19 

15.770.551  42 

16.724.552  86 
17,282,488  44 
18,215,870  64 
18,716,981  55 
19,988,492  89 
21,054,840  11 
21,725,667  80 
22,868,958  08 
24,886,864  08 
25,589,887  56 
26,544,278  22 
22,111,528  22 

Net  Debt. 

$27,812,985  28 
27,505,005  74 
28,277,082  96 
26,855,464  94 
26,184,171  42 
26,097,788  05 
26,658,456  41 
24,248,046  60 
24,881,025  02 
25,811,685  52 
24,766,064  27 
24,700,014  29 
26,854,895  47 
27,627,688  47 
26,850,901  99 
28,821,788  06 
81,058,496  98 
80,708,858  84 
80,589,289  97 
88,720,111  98 


While  the  increase  in  the  net  debt  during  the  past 
three  years  has  been  only  $2,666,614.95,  and  while 
this  increase  is  at  least  $2,000,000  more  than  it 
would  have  been  if  the  condition  of  the  money 
market  in  September  and  October,  1893,  had  not 
rendered  a  large  issue  of  bonds  a  prudent  measure 
of  precaution,  still  it  is  to  be  regretted  that  there 
was  any  increase  whatever.  Every  effort  should  be 
made  during  the  coming  year  to  prevent  any  further 
increase,  and  if  possible  to  effect  a  reduction,  in  the 
net  city  debt. 


It  seems  to  me  that  under  existing  conditions 
the  exercise  of  the  power  to  borrow  money 
should  be  restricted  to  objects  of  immediate 
and  admitted  necessity,  and  to  such  other  im- 
provements, valuable  in  themselves,  as  will 
involve  payments  for  construction  rather  than 
expenditures  for  land.  The  park  system  is 
in  need  of  additional  money  for  construction, 
and  I  would  recommend  a  loan  of  $500,000 
for  that  purpose ;  an  equal  amount  could  well 
be  appropriated  for  public  buildings,  chiefly  for 
the  city  hospital  and  schools ;  and  $500,000 
might  well  be  allotted  to  street  construction ; 
making     a     total    loan    for    these    purposes     of 


fl,500,000,  A  new  bridge  to  Chariestown  is 
a  necessity.  These  and  the  proposed  extension 
of  Columbus  avenue  through  Pynchon  street  to 
Franklin  Park  are  improvements  which,  in  my 
judgment,  might  well  be  provided  for  at  the 
present  time. 

Money  for  these  several  items  can  all  be  pro- 
cured within  the  debt  limit,  as  the  borrowing 
capacity  of  the  city  is  $2,976,852 ;  and  it  is  to 
be  hoped  that  no  application  will  be  made  to 
the  legislature  of  1894  for  leave  to  borrow  out- 
side the  debt  limit,  except  in  connection  with 
the  proposed  subway. 


It  should  be  our  aim  to  push  ttie  park  system 
to  completion.  The  Parkway  should  be  com- 
pleted to  Franklin  Park  before  the  summer ; 
but  the  city  has  been  compelled  to  pay  very 
much  more  for  land  than  was  originally  esti- 
mated, and  the  result  is  that  the  balance  of 
the  loans  already  authorized  available  for  con- 
struction and  for  the  erection  of  buildings  is  less 
than  was  anticipated.  If  the  additional  appro- 
priation already  suggested  is  made,  the  park 
commissioners  will  be  enabled  to  finish  much  of 
the  work  which  will  otherwise  be  left  incomplete. 


Land  for  the  park  at  the  North  End  (author- 
ized by  Statute  1893,  Chapter  282)  has  been 
taken,  and  the  work  of  demolishing  the  present 
buildings  will  be  commencefd  as  soon  as  they 
can  be  vacated. 

The  metropolitan  park  commission  has  begun 
its  work,  and  is  expected  soon  to  take  for  park 
purposes  the  woods  about  Muddy  Pond,  in  West 
Roxbury.  If  this  is  done,  the  new  park  should 
be  connected  with  the  Boston  park  system  by 
constructing  a  parkway  to  the  Arnold  Arbore- 
tum or  Franklin  Park,  provided  the  land-owners 
are  willing  to  codperate  with  the  city, 


The  rejection  by  popular  vote  of  the  so-called 
Rapid  Transit  Act  led  the  city  government  of 
1893  to  adopt  the  alternative  measure  contained 
in  Chapter  478  of  the  Acts  of  1893,  providing 
for  the  construction  of  a  subway  for  street-railway 
purposes  under  Tremont  street.  This  action  was 
taken  in  the  belief  that  a  subway  could  be 
so  constructed  under  Tremont  and  connecting 
streets  as  to  accommodate  all  the  railway  tracks 
now  entering  that  thoroughfare  from  the  south 
and  west;  that  the  patrons  of  the  street-railway 
system    could    in    this    way    be    furnished  with 


quicker  transportation  and  more  convenient  wait- 
ing-places than  is  possible  under  existing  con- 
ditions; that  the  surface  of  Tremont  street 
should  be  restored  to  the  exclusive  use  of  foot 
passengers,  carriages,  and  teams  forever;  that 
the  rentals  for  the  use  of  the  subway  would 
probably  be  sufficient  to  cover  the  interest  on  the 
bonds  to  be  issued  under  the  Act,  and  to  pro- 
vide  a  sinking  fund  for  their  payment  at 
maturity;  and  that  the  State  legislature  and  the 
city  government  of  1894  would  be  prompt  to 
take  such  action  in  the  premises  as  may  be 
necessary  to  secure  these  ends« 

I  shall  this  day  appoint,  subject  to  confirmation 
by  the  board  of  aldermen,  the  three  members  of  the 
subway  commission;  and  I  trust  that  the  charac- 
ter of  the  gentlemen  selected  will  be  taken  ias  a 
guarantee  that  this  great  project  will  either  be. 
carried  out  in  such  manner  as  most  to  benefit  the. 
public  and  within  the  appropriations  that  may 
be  granted  in  advance,  or  not  at  all. 

The  subway,  if  built,  will  be  the  property  of 
the  city,  and  is  to  be  leased  on  public  account  at 
a  rental  to  be  fiLs:ed  by  the  board  of  railroad 
commissioners.  It  is  to  be  hoped  that  the  West 
End  Street  Railway  Company  will  from  the  out- 
set   cooperate    with    the    subway  commission   and 


the  city  government  in  the  matter  of  approaches, 
and  other  details. 

The  board  of  aldermen  for  the  current  year 
could  perform  no  greater  public  service  than  to 
sanction  or  direct  the  removal  of  many  of  the 
West  End  tracks,  which  the  company  has  either 
ceased  to  use,  or  continues  to  operate  for  the 
benefit  of  a  few  people  only,  to  the  inconvenience 
of  all  the  rest. 


The  relations  between  the  city  and  the  various 
gas  companies  doing  business  therein  having  been 
readjusted,  it  remains  to  discover  what  can  be  done 
to  secure  a  wider  benefit  from  the  use  of  electricity 
to  light  our  streets  and  parks.  The  electric  lights 
now  seen  upon  the  highways  have  been  placed 
hap-hazard  for  the  benefit  of  individual  applicants 
rather  than  erected  upon  a  comprehensive  plan  for 
the  benefit  of  the  entire  community;  their  cost  is 
excessive,  considering  the  number  of  them;  and 
as  the  city  is  not  permitted  by  law  to  establish 
a  street-lighting  plant  of  its  own,  it  is  at  a  dis- 
advantage in  its  negotiations  with  the  electric- 
light  companies. 

The  legislature  should  permit  cities  and  towns, 
under     proper    restrictions,    to     light    their     own 


streets  and  public  places;  but  it  is  in  every  way 
preferable  to  conduct  this  business  through  the 
agency  of  private  corporations  if  reasonable 
terms  can  be  obtained. 

The  superintendent  of  lamps  informs  me  that 
he  is  at  work  upon  a  comprehensive  plan  for 
extending  this  branch  of  municipal  service,  and 
hopes  to  be  able  to  obtain  from  the  corporations 
interested  such  terms  as  will  warrant  its  execution. 

THE    BELIEF    OP    THE    POOR. 

The  proper  action  of  the  city  government  in 
the  matter  of  furnishing  employment  to  the  thou- 
sands of  our  citizens  who  are  now  unfortunately 
out  of  work  is  the  subject  of  much  discussion 
and  diversity  of  opinion;  and  the  present  occa- 
sion seems  opportune  for  the  presentation  of  cer- 
tain fundamental  considerations  bearing  on  the 

Municipal  governments  in  Massachusetts  are  the 
creatures  of  the  State  Legislature,  endowed  with 
^*  such  powers,  privileges,  and  immimities  not  re- 
pugnant to  the  constitution,  as  the  general  court 
shall  deem  necessary  or  expedient  for  the  regulation 
or  government  thereof.''  (Amendments  to  the  Con- 
stitution, Article  II.)  They  are  not  miniature  States 
with  power  to   act  upon    such    political  or  social 


theories  of  government  as  may  seem  to  their  mem- 
bers wise ;  they  can  raise  no  more  money  by  taxation 
or  by  loan  than  is  expressly  authorized  by  statute; 
they  can  appropriate  and  expend  this  money  only  for 
such  purposes  as  have  been  permitted  by  general  or 
special  laws.  The  city  does  not,  in  the  opinion  of 
the  Supreme  Judicial  Court,  collect  its  revenue  "  as 
absolute  owner  with  an  unfettered  right  of  disposing 
of  it  for  any  object  which  a  majority  of  the  voters 
might  select  and  determine."  It  is  "received  for 
the  use  and  benefit  of  all  the  inhabitants,  not  for 
any  class  or  portion  of  them,  and  can  be  expended 
in  such  manner  and  for  such  purposes  as  towns 
in  their  corporate  capacity  are  authorized  by  law 
to  use  and  appropriate  money,  and  for  no  other 
object    whatever." 

It  is  legally  impossible  under  the  laws  of  Massa- 
chusetts for  the  city  of  Boston  to  expend  its  revenues 
or  to  borrow  money  for  the  relief,  support,  main- 
tenance, or  employment  of  the  poor,  except  through 
the  Overseers  of  the  Poor  for  the  relief  of  those 
unfortunates  who  are  entitled  under  the  provisions 
of  Chapter  84  of  the  Public  Statutes  to  assistance 
as  paupers,  or  in  the  manner  and  to  the  limited 
extent  allowed  by  Chapter  274  of  the  Acts  of  1874; 
and  in  either  case  a  special  appropriation  is  required. 

These  laws  and  limitations  are  enacted  at  the 


State  House,  not  in  the  City  Hall;  and  if  changes 
are  desired  application  must  be  made  to  the  State 
Legislature,  which  alone  has  the  power  to  enlarge 
the  functions  of  our  municipal  government. 

Such  appeals,  however,  should  not  be  lightly 
made  or  hastily  granted.  The  municipal  law  of 
Massachusetts  does  not  differ  materially  from  that 
of  other  States,  and  is  a  characteristic  application 
of  the  general  theory  of  our  American  institutions, 
the  tendency  of  which  is  to  restrict  rather  than  to 
enlarge,  the  ftinctions  of  government.  This  theory, 
with  the  constitutional  and  other  checks  and 
balances  which  have  been  invented,  to  support  it, 
is  destined  to  be  the  chief  defence  of  the  Ameri- 
can people  and  their  free  institutions  against  the 
insidious  encroachment  of  socialism  and  other  for- 
eign remedies  for  the  evils  of  civilization.  It  is 
the  original  and  essential  feature  of  American 
democracy;  it  has  in  recent  years  been  too  fre- 
quently departed  from;  and  what  is  now  required 
is  rather  a  return  to  first  principles  than  hasty 
and  unwise  extensions  of  the  objects  of  public  ex- 

The  main  reliance  of  every  community  in  emer- 
gencies like  the  present  must  be  the  generosity 
and  public  spirit  of  its  individual  citizens.  The 
people  of  Boston   enjoy  a  well-deserved    reputa- 


tion  for  hospitality,  charity,  and  civic  pride;  and 
there  is  no  reason  to  doubt  that  they  will  re- 
spond now,  as  in  the  past,  to  all  urgent  and  well- 
considered  appeals  on  behalf  of  poverty  and  want. 

While,  however,  the  city,  as  a  corporation, 
cannot  expend  its  money  for  the  sole  purpose 
of  providing  employment  or  relief,  except  through 
the  Overseers  of  the  Poor,  or  by  the  City  Council 
imder  the  special  statute  referred  to ;  while  the 
executive  officers  of  the  city  must  faithfully  ex- 
pend the  appropriations  granted  by  the  .  City 
Council  for  the  purposes  designated  ;  while  they 
would  not  be  justified  either  in  exceeding  these 
appropriations  or  in  expending  them  upon  work 
which  cannot  profitably  be  prosecuted  at  this 
season  of  the  year,  —  it  nevertheless  does  not 
follow  that  the  city  and  its  officers  can  do 
nothing  in  this  emergency. 

Much,  on  the  contrary,  can  properly  be  done  by 
the  heads  of  departments,  other  than  the  Overseers 
of  the  Poor,  in  furnishing  as  much  employment 
as  can  be  given  without  increasing  the  cost  or 
diminishing  the  quality  of  the  public  work  in- 
trusted to  their  care.  Building  contracts  can  be 
let,  under  present  conditions,  upon  favorable  terms. 
Deep-cut  sewers  can  be  built  as  well  in  winter 
as  at    other    seasons    of  the    year;  the    work  of 


grading  and  filling  new  streets  can  be  carried 
on,  though  no  paving  or  surfacing  can  be  done 
while  the  frost  lasts  ;  stone  can  be  quarried  and 
crushed  for  use  in  the  spring ;  an  indefinite 
amount  of  labor  can  at  all  seasons  of  the  year 
be  devoted  to  cleaning  the  public  and  private 
ways  of  the  city ;  and  the  work  of  in-door  re- 
pairs can  also  be  prosecuted  at  any  time. 

The  activity  of  the  departments  in  furnishing 
work  of  the  above  description  is  limited  only  by 
the  appropriations  granted  by  the  City  Council ; 
these,  in  turn,  are  limited  by  the  laws  'relating 
to  taxation  and  indebtedness ;  and  within  these 
limits  every  effort  is  being  made  to  accelerate 
the  progress   of  public  work. 

In  view  of  the  probability  of  hard  times  this 
winter  and  of  the  possibility  of  an  adverse  bond 
'  market,  it  was  thought  prudent  in  September  and 
October,  1893,  to  offer  for  sale  an  unusually 
large  and  otherwise  unnecessary  amount  of  city 
bonds;  and  as  soon  as  these  sales  were  effected 
orders  were  given  to  press  the  work  upon  the 
buildings  and  other  objects  for  which  the  pro- 
ceeds had  been  appropriated.  Thirty-two  build- 
ings are  now  under  contract,  and  twelve 
more  are  almost  ready  to  be  advertised.  An 
extra  amount  of  deep   sewer   work  has  been  laid 


out,  sufficient,  it  is  thought,  to  keep  the  entire 
force  of  the  sewer  division  at  work.  Flans  are 
being  made  for  the  extension  of  Boylston  street, 
the  widening  of  Blue  Hill  avenue,  and  for  other 
work  of  street  construction,  upon  which  grading, 
clearing,  and  filling  can  be  done  this  winter. 
Such  work  upon  the  parks  as  can  be  prosecuted 
in  winter  is  now  going  on;  and  all  the  work  pos- 
sible in  the  city  ledges  will  soon  be  under  way. 
Whether  the  number  of  the  unemployed  be 
greater  or  less  than  has  been  stated,  it  cannot 
be  doubted  that  conditions  of  unusual  severity 
confront  the  people  this  winter.  Every  citizen 
who  can  afford  it  should  render  aid,  preferably 
in  the  form  of  work,  to  those  in  need  of  it; 
and  this  obligation  rests  with  special  emphasis 
upon  public  officials,  whether  elected  or  appointed. 
I  take  pleasure  in  acknowledging  the  alacrity  with 
which  the  various  heads  of  departments  have  re- 
sponded to  the  call  for  suggestions  and  assist- 
ance, and  the  generous  contributions  by  city 
employees    to    the    fund    of 

*    THE     citizen's     BELIEF     OOMMTTTBE. 

In  addition  to  the  work  undertaken  by  the  city, 
the  recently  organized  Citizens'  Kelief  Committee 
is    attempting    to    furnish   employment    upon   the 


streets  and  sewers.  Thq  street  work  consists  of 
cleaning  and  carting,  and  is  paid  for  by  the  com- 
mittee,  the  city  furnishing  tools  and  superintend- 
ence. The  sewer  work  consists  of  sewers  which 
cannot  be  built  at  this  season  of  the  year,  ex- 
cept at  unwarrantable  expense;  the  city  pays 
what  the  work  would  cost  under  normal  condi- 
tions; and  the  committee  makes  up  the  diflference. 
This  plan  of  relief  is  still  in  its  experimental 
stage;  but  if  successful,  it  has  the  great  advan- 
tage over  any  other  suggested  of  Securing  the 
employment  of  more  men  for  a  given  amount  sub- 
scribed. Every  effort  is  also  being  made  to  pro- 
vide employment  for  women,  among  whom  the 
amount  of  distress  is  not  to  be  measured  by  the  , 
number  of  applicants  for  work. 

This  committee  is  composed  partly  of  city  offi- 
cials and  partly  of  well-known  and  public-spirited 
citizens  who  have  volunteered  to  give  their  time 
and  labor  this  winter  to  the  cause  of  the  unem- 
ployed. The  community  can  have  absolute  confi- 
dence in  their  appreciation  of  the  hard  conditions 
which  surround  us,  and  in  their  prudence  in  ad- 
ministering relief.  The  good  which  this  move- 
ment can  accomplish  is  obviously  limited  by  the 
amounts  subscribed  by  the  charitable  people  of  the 
city,  and  I  trust  that  the  responses  to  the   com- 


mittee's   appeal  for  funds  will  continue  to  be  as 
liberal  as  during  the  past  two  weeks. 

Oentlemen  of  the   City   Council : 

The  City  Council  of  1894  will  be  constituted 
somewhat  differently,  with  respect  to  party  hues, 
than  those  with  which  I  have  had  the  pleasure  of 
serving  during  the  past  three  years.  It  should  not 
be  forgotten,  however,  that  the  practice  of  making 
party  nominations  for  municipal  ofSlces  cannot 
make  party  issues  out  of  municipal  questions, 
unless  these  enter  avowedly  into  the  canvas.  The 
success  of  one  party  or  the  other  may  affect  ap- 
pointments by  the  Mayor  or  elections  by  the  City 
Council,  and  the  success  or  failure  of  the  city 
government  for  the  year  will  reflect  credit  or  dis- 
credit upon  the  party  which  has  made  itself  re- 
sponsible for  the  successful  candidates;  but  with 
these  qualifications  it  is  literally  true  that  there 
are  no  differences  in  city  government  based  on 
state  or  national  party  issues.  The  questions  that 
will  absorb  our  attention  this  year  are  business, 
not  party,  questions.  Let  us  resolve  to  approach 
the  consideration  of  them  in  a  spirit  devoid  of 
partisanship,  political,  personal,  or  local,  and  to 
merit  the  approbation  of  our  fellow-citizens  by 
unselfish  devotion  to  the  duties  we  have  been 
elected  to  discharge. 




Crrr  or  Boston,  Office  of  the  Matob, 

CiTT  Hall,  January  1, 1894. 

To  the  Honordble  the  City  Council : 

Gentlemen:  The  amount  that  the  city  may  appropriate  from 
revenues  and  taxes  for  the  fiscal  year  1894-95  is  $13,891,754,  pro- 
cured as  follows: 

Department  estimates  of  income      •        •        •        •  f     $775,000 

Corporation  tax,  estimated  receipts         •        .        •  875,000 

Liquor  licenses,  estimated  net  receipts    •        •        •  790,000 

Estimated  cash  on  hand  February  1,  1894       .        •  50,000 

Product  of  $9  law 7,650,686 

Extra  for  county  expenses 425,000 

Total  for  department  expenditures  •        •    $10,565,686 

Interest  on  city  and  county  debt     •         $1,580,720 
Sinking  funds  and  principal  of  debt  1,245,348 


Total $13,391,754 



I  transmit  herewith  the  department  estimates  of  expenditures, 
and  my  own  recommendations  in  respect  thereto  are  as  follows : 

Appropriatioiui    RocommendatloiM 
for  180S-M.  for  1804-06. 

Architect  Department 

•        •        • 



Assessing  Department 

•        •        • 



Auditing  Department 

•        •        • 



Board  of  Aldermen : 


•        •        • 



Contingent  expenses 

•        •        • 



Soldiers'  relief 

•        •        • 



City  Clerk  Department 

•        •        • 



City  Council : 

Contingent  expenses,  Joint  Committees, 



Incidental  expenses 

•        •        « 



City  Messenger  Department 



Clerk  of  Committees  Department 



Collecting  Department 

•         •        • 



Common  Council : 

Clerk's  expenses     • 



Contingent  expenses 



Engineering  Department 



Ferry  Department 



Fire  Department 



Health  Department    • 



Hospital  Department  • 



Inspection  of  Buildmgs  Department   • 



Board  of  Appeal 

•        •        • 


Inspection  of  Milk  and 

Vinegar  De- 


•        •        • 



Amounts  carried  fonvard 

$2,281,330      $2,273,730 



Ai»proprl«tloiii   BeoommendatIon« 
forl80S-04.            forl8M-«S. 

Amounts  brought  forward 

.      $2,281,380 


Inspection  of  ProviBions     . 



Lamp  Department 



Law  Department 



Library  Department  . 



Market  Department   . 






Mt.  Hope  Cemetery  Department 



Overseeing  of  the  Poor  Department 



Park  Department 



Police  Department     • 



Printing  Department . 



Public  Buildings  Department 



Public  Buildings,  schools   • 



Public  Celebrations    • 



Public  Grounds  Department 



Public  Institutions  Department  . 



Registration  of  Voters  Department 



Registry  Department  • 



Reserved  Fund  .        •        •        • 



School  Committee 



Sealing  of  W  eights  and  Measures  Def 

)'t,           19,953 


Sinking-Fund  Department  . 



Street  Department: 

Central  Office    .        .        •        • 



Bridge  Division 



Cambridge-Bridges  Division    . 



Paving  Division 



Sanitary  Division   . 



Amounts  carried  forward 

.      $9,088,658 


26                                       APPENDICES. 


for  1804-M. 

Amounts  brought  fortoard^ 



Sewer  Division 



Street-Cleaning  Division, 



Watering  Division  • 



Street  Laying-Oat  Department,     17,500 


Sarveying  Department 




Treasury  Department 



Hoose  of  Correction    . 



County,  general  expenses    • 



City  Debt  Requirements : 

Sinking  Funds,  $1,176,842 


Interest       .        1,550,000 



o  f!oq  f»70 

County  Debt  Re- 

quirements : 

Sinking    Fund 

and  principal 

of  debt    .            $62,877 


Interest     •            121,000 



1AT    OOA 


Totals    ...        1 



Water-Income  Department : 

Cochitnate  Water- Works, 



Mystic  Water-Works 



$68,800  $60,500 


Water-Supply  Department : 
Cochitaate  Water-Works : 
Current  expenses 
Interest       •        •        •        . 
Sinking-Fand  Reqairements 
Extension  of  Mains     • 

ApproprUtlonii   ! 

for  18M-«6. 










Mystio  Water- Works ; 
Current  expenses          •        .        .      $128,000  00  $128,000  00 
Interest 16,827  50         2,550  00 

$144,827  50  $130,550  00 

Bespectfnlly  submitted, 

N.  Matthews,  Jb., 





Cnr  AND  Couirrr  Debt. 

Gross  funded  debt,  Deo.  81,  1892        •        •        .  $57,083,563  19 
Add  funded  debt  issued  in  1893  ....      6,115,525  00 

$63,199,088  19 
Deduot  funded  debt  paid  in  1893         .        •        .      7,367,453  04 

Gross  debt,  Dec.  31,  1893 $55,831,635  15 

Sinking  funds,  Dec.  31,  1892      .  $26,229,496  86 
Receipts  during  1893  .        •        •      2,675,145  03 

$28,904,641  89 
Payments  during  1893        •    .    .      7,203,747  07 

$21,700,894  82 
Bonds,    betterments,    etc.,    the 

payment  of  which  is  pledged 

to  the  payment  of  debt: 
Bonds        •        .        •    $3,587  00 
Betterments,  etc.        .  115,747  69 
Sidewalk  assessments, 

chap.  401,  Acts  of 

1892       .        .        .  145,548  42 
Sewer    assessments, 

chap.  402,  Acts  of 

1892  .         •        .  138,168  73 
Sidewalk  assessments, 

chap.  437,  Acts  of 

1893  .         .         .      7,576  56 

410,628  40 

Total  redemption  means  Deo.   31,   1893  .        •    22,111,523  22 
Net  debt,   Dec.   31,    1893  ....  $33,720,111  93 


Gross  debt,  Deo.   31,   1892       ....  $57,083,563  19 
Gross  debt,  Dec.   31,   1893       ....    55,831,635  15 

Decrease $1,251,928  04 

Net  debt,  Deo.   31,   1893 $33,720,111  93 

Net  debt,   Deo.   31,   1892 30,539,289  97 

Increase $8,180,821  96 

Net  debt,  Dec.   31,   1893 $33,720,111  93 

Net  debt,  Dec.   31,   1890 31,053,496  98 

Increase $2,666,614  95 

City  debt,  indading  balance  of  debts  assumed 

by  acts  of  annexation $35,019,361  17 

County  debt       .        .        •        .        .        .        •      3,659,000  00 

Cochitnate  water  debt 17,051,273  98 

Mystic  water  debt 102,000  00 

$55,831,635  15 

















Pnbllo  Park  Oonitrnctioii  .  .  . 

Suifolk  Ooanty  €k»nit.Hoiuei . 

HuTwrd  Brtdg* 

Pablio  Park  Land! 

Sewar,  Tremont  ft.  • 

Stony-brook  ImproTament    .  . 

Public  Park  Laoda 

Naw  Library  Building  .  .  •  . 

W.  Cheitar-park  Bxtanaion .  . 

Congreu-0t.  and  Oliver-at.  Ex- 

Improvad  Sawaraga 

Pnblio  Parks,  Charlaatown  .  . 


Naw  Library  Building   .  .  •  . 
Laying  Ovt  and  Oonttraetton  of 



Suffolk  County  Oonrt-Houaa, 

Subway   ........... 


$2,600,000  00 

*  76,000 
>  76,000 


1600,000  00 
600,000  00 

200,000  00 

8,600,000  00 
1,000,000  00 

100,000  00 
2,000,000  00 

Date  of 










21. 1886 . 

21. 1887 . 
18, 1887 . 
11, 1887 . 
16, 1887 . 

12, 1880 . 

April  26, 1880  • 

May      0,  isao . 

May      Sand   { 
June  28,18001 

May     7,  1801 . 
May    11,  1801 . 

May     0,  1802 . 
June  10, 1808 . 


$2,600,000  00 

2,781,000  00 

260,000  00 

400,000  00 

600,000  00 

600,000  00 

1,000,000  00 

600,000  00 

200,000  00 

2,401,000  00 
700,000  00 

1,000,000  00 

100,000  00 

1  $2,600,000  in  addition  to  tbe  ooit  of  Und.  Ooat  of  land,  $1,066,460.60;  $2,781,000  author- 
ised  by  Oity  Oounoil. 

>  Kerer  approved  by  City  Council. 

•  Not  exceeding  $1,000,000  each  year— debt  authorized  in  1801  ($600,000).lniide  of  debt 
limit;  debt  authorized  after  1801  outaide  of  debt  limit.. 



LOANS    ISSUED    IN   1898. 

D»te  of  Order. 

Not.  18, 1889  •  .  . 
May  20, 1891  .  .  . 
Ma720,1891    .  .  . 

Oct.  24, 1891  .  •  . 
Dee.  6, 1891 .... 

Jan.  2, 1892  .  .  .  . 

Jan.  28, 1892  .  .  . 

Kay  24, 1892  .  .  . 

June  1,  1892  •  .  . 

Jalyll,1892  .  .  . 

Ang.24,1892  .  .  . 

Aug.  26, 1892  .  .  . 

Oot.  7, 1892  .  .  .  . 

Oct  7, 1892  .  .  .  . 

Feb.  15,1893    .  .  . 

June  26, 1898  .  .  . 

jQl7lO,1893    .  .  . 

Oct.  28, 1898 .  .  .  . 

Oot.  27, 1893.  .  .  . 


Additional  Bupply  of  Water 
PabUo  Parke 

Laying  Out  and   Oonetmetton  of 

Library  Bnllding,  Dartmouth  Street 

L«treet  Bridge 

New  BnlldingB,  City  Hoapital    .  .  . 

ImproTed  Sewerage  •••••••• 

Varlooa  Municipal  Porpoiee,  1892   . 

High  Service 

Suffolk  Oonnty  Ooart-HouM,  For- 

New  Lunatic  Hoapital  .  • 

Suffolk  County  Ooart-Honae  .  .  •  . 

Addittonal  Land,  City  Hoapital.  .  . 

Street  Laying  Out  Department .  .  • 

Laying  Out  and  Oonatruotion  of 

Emox  and  Lincoln  Streeta 

Variona  Municipal  Purpoeea,  1898  . 

Stony-brook  Damagea 

Suffolk  County  Couit-Houae,  Far. 

Included  in 
Debt  Limit. 

Inalde  Debt  Limit .  .   $8,091,025  00 
Outaide  Debt  Limit  .     8,024.600  00 

$6,116,626  00 

$248,200  00 

80,000  00 
186,600  00 
100,000  00 
919,726  00 

166,000  00 

42,000  00 
10,000  00 

960,600  00 

1,164,100  00 

80,000  00 

$8,091,026  00 

OuUide  Debt 

$217,600  00 
1,401,000  00 

600,000  00 

75,000  00 
60,000  00 

106,000  00 

500,000  00 

76,000  00 

$3,024,500  00 




Date  of  Order. 


Debt  IJmlt. 

Debt  liimlt. 

Not.  18, 1880   .  .  . 
May  20, 1801    ..  . 
Oot.  24, 1801   ... 
Jan.  23,1802  .  •  • 
April  28, 1808   .  .  . 
May  17, 1808  ..  . 
Jaly  10, 1808  .  .  . 
Dec.  20, 1808  .  .  . 
Deo.  80, 1808  .  .  . 

Additional  Sannlr  of  Water  .... 

•10,000  00 

1,000,000  00 

800,000  00 

2,600,000  00 
600,000  00 

Pablio  Parke  . 

library  Building,  Dartmouth  Street, 

Improved  Sewerage 

AdditioDf^l  BqodIt  of  Water  •  .  •  . 

•60,000  00 

Pablio  Park,  Wards  0  and  T   .... 
Variona  Mnnioipal  Pnrpoaea,  1808  . 

Laying  Oat  and  Oonetraotlon  of  High- 
way! ...••.••...••.. 

1860,000  00 

1,860,000  00 

860,000  00 

•2,000,000  00 

•4.400,000  00 

Indde  Debt  Limit    . 
Outiride  Debt  limit . 

, •2.000.000  00 

4,400,000  00 

•0,400,000  00 

1  Chap.  282,  Aots  of  1808,  anthorises  the  Olty  of  Boston  to  take  land  for  a  pablie  park  or 
playgronnd  in  Wards  8  and  7,  the  assessed  Taloation  of  said  land  not  to  exceed  •800,000; 
also  aathorices  the  expenditure  of  ^60,000  for  preparing  said  land  for  pablie  use. 

James  H.  Dodge, 

City  Auditor. 




Assessors'  Office,  Cttt  Hall, 

Boston,  January  1,  1894. 
Hon.  Nathan  Matthews,  Jb., 

Mayor  of  the  OUy  of  Boston: 

Sib  :  We  herewith  transmit  a  statement  of  the  Assessors*  valna- 

tions  for  the  preceding  five  years,  and  the  abatements  thereon 

allowed  previous  to  the  thirty-first  day   of   December.     Also 

the  average  of    such  valuations  reduced  by  such  abatements. 





$795,943,043  71 



822,460,400  00 



855,413,414  62 



895,993,704  00 



924,425,251  72 


Totals  . 

.  $4,294,235,814  05 


Less  abatements 

43,854,500  00 

$4,250,881,314  05 

Divided  by  5,   gives  $850,076,262. 

For  the  Board  of  Assessors, 

Frank  A.  Drew, 





Boston,  December  31,  1898. 

Hon.  Nathan  Matthews,  Jr., 

Mayer  of  the  City  of  Boston: 

Sib:  The  assessments  committed  to  the  Collector  for  the 
financial  year  beginning  February  1,  1893,  not  including  Co- 
chituate  and  Mystic  water-rates,  amount  to  818,418,958.53. 
Of  this  amount  there  has  been,  to  December  81,  1898,  $11,182,- 
092.67  collected;  •120,948.17  abated,  and  82,165,922.69  remains 
ancollected.  This  includes  the  State,  City,  and  County  taxes, 
$11,989,720.72,  of  which  $9,845,088.89  has  been  collected; 
$95,662.64  abated;  leaving  $1,999,019.19  unpaid,  and  the  Bank 
tax,  $821,715.20,   all  of    which  has  been  paid. 

The  Cochituate  water-rates,  assessed  on  the  first  of  January, 
1898,  and  additional  and  meter-rates  assessed  during  the  year, 
amount  to  $1,671,894.59.  There  has  been  paid  of  these  rates 
$1,489,054.68;   abated,  $14,458.02  ;  leaving  $217,881.94  unpaid. 

The  Mystic  water-rates  for  the  same  time  stand  as  follows: 
Assessed,  $429,718.55;  paid,  $891,491.20;  abated,  $5,088.65; 
unpaid,  $88,138.70. 

The  total  receipts  from  all  sources,  from  February  1,  1898,  to 
December  31,   1893,  inclusive,  amount  to  $16,528,958.16. 

A  general  summary  of  the  accounts  shows  that  the  balance 
of  bills  and  assessments  outstanding 


January  1,  1898,  was $2,769,771  48 

The  assessments  from  Jan.  1,  1898,  to  Dec. 

81,   1898 16,712,524  89 

Cash  deposits,   from    Jan.   1,   1898,   to    Dec. 

81,   1898 2,809,526  64 

Total  amount  charged  to  Collector  $21,291,822  96 

Of  this  amount  the  Collector  is  credited,  with 

abatements $877,284  45 

Cash  paid  City  Treasurer        ....  17,606,414  29 

Balance  uncollected 8,808,174  22 

$21,291,822  96 

The  following  statement  shows  the  amount  of  the  Assessors' 

warrants  for  three  years: 

1891-92 $10,860,874  76 

1892-98 11,656,484  92 

1898-94 11,939,720  72 

and  the  collections,  abatements,  and  amounts  outstanding  thereon 

to  December  81st  of  the  respective  years: 

1891-92.     Collected   .  .      $9,080,584  85  or  88.1% 

Abated      •  .  61,089  22  <<       .6% 

Uncollected        .        .        1,769,251  19  ''  16.8% 

$10,860,874  76 

1892-98.     Collected   .         .         .      $9,903,985  81  or  85.  % 
Abated  85,985  07   ''       .7% 

Uncollected  1,666,514  54   ''    14.8% 

$11,656,484  92 


1893-94.     GoUected   .         .         .      $9,845,038  89  or  82.5% 
Abated      •  .  95,662  64  '«       .8% 

Unoollected        .         •        1,999,019  19  ''    16.7% 

$11,939,720  72 


BespectfoUy  submitted, 

Jakes  W.  Bicker, 

City  Collector. 




CiTT  OF  Boston. 
BoABD  OF  Commissioners  of  Sinking  Funds,        ^ 

Cnr  Hall,  January  1,  1894. 

Hon.  Nathan  Matthew|,  Jb., 

Mayor  of  the  City  of  Boston : 

Sir:  In  accordance  with  the  provisions  of  chap.  98, 
Acts  of  1891,  it  is  estimated  that  the  amount  which  the 
city  will  be  able  to  borrow  during  the  present  municipal 
year  within  the  debt  limit  established  by  law  is  $2,976,852, 
as  per  schedule  annexed. 

A.  Dayib  Weld, 

Hbnbt  R.  Reed, 

Samuel  Johnson, 

Joseph  H.  Gbat, 

Chas.  H.  Allen, 

Nathaniel  J.  Rust, 

Board  of  Commissioners  of  Sinking  Funds. 

Alfred  T.  Turner, 

City  Th'ecLSurer. 

James  H.  Dodge, 

City  Auditor. 


Total  Debt,  City  and  County,  Dec.  81,  1898  .    $55,881,685  15 

Less  Special  Loana  (ontside  of  limit)  .        .   ^,551,000  00 

Cocliituate  Water  Debt   ....    17,051,278  98 

Mystic  Water  Debt  ....         102,000  00 

Comity  Debt  (ontside  of  limit)        .        .     2,881,000  00 

29,585,278  98 

1,480  88    I 

$26,246,861  17 

Sinking  Funds $21,700,894  82 

Less  Cochitnate  Water  Sinking 
Fnnd    ....  $7,528,198  88 

Mystic  Water  Sinking  Fnnd,       264,045  56 

Pnblic  Park  Constmction  Sink- 
ing Fnnd      ....       471, 

Special  Loana  Sinking  Fnnd,       551,982  66 

County  Court-House    Sinking 

Fnnd 205,898  72 

9,015,995  70 

12,684,899  12 

Debt,  excluding  Loans  outside  of  limit,  and  deducting  Sink- 
ing Fund  for  said  debt '.        .   $18,561,462  05 

Two  per  cent,  on  $819,818,202,  ayerage  valuation  for  flye 

years,  less  abatements $16,886,264  04 

Debt  as  aboye 18,561,462  05 

$9,824,801  99 

Average  valuation  for  five  years,  less  abate- 
ments to  Dec.  81,  1898     ....     $850,076,262 

Average  valuation  for  five  years,  less  abate- 
ments to  Dec.  81,  1892     ....        819,818,202 

Two  per  cent,  on  increase  $80,768,060  615,261  20 

Interest  on  Investments,  Jan.  1,  1894  .  69,185  00 

Right  to  borrow,  Jan.  1,  1894 $8,509,198  00 


Right  to  borrow,  Jan.  1 9  1894      ....  $3,509,19800 

April    1,  1894.    Interest  on  Investments  120,467  00 

July      1,  1894.          '»       an  62,775  00 

Oct.      1,  1894.          *i    ^'           u               ,  .         120,000  00 

«'         1,  1894.     Debt  paid  from  Appropriation  .           17,000  00 

Nov.     1,1894.     Appropriation  for  Debt     .  963,517  00 

Dec.    31,1894.     Sterling  Debt  Redeemed   .  80,000  00 

«^      81,  1894.    Interest  on  Bank  Deposits  50,000  00 

Jan.      1,1895.     Interest  on  Investments    .  .           53,895  00 

$4,976,852  00 
Less  loans  authorized,  bu|  not  negotiated     .        .      2,000,000  00 

$2,976,852  00 




Cmr  OF  Boston. 
Office  of  Cnr  Trbasureb, 

Cur  Hall,  December  80,  1893. 

Hon.   Nathan  Matthews,  Jb., 


Mayor  of  the  City  of  Boston  : 

Sib:  The  balance  of  cash  in  the  Treasury  of  the  City  of 
Boston,  December  80,  1898,  was  $4,596,458.02,  held  for  the 
following  purposes: 

For  General  Appropriations      ....  SI, 701,217  40  ^ 
For    Special     Appropriations,    money    derived 

from  loans 2,647,892  18 

For  Special  and  Trust  Accounts  247,848  49 

$4,596,458  02 

Respectfully  yours, 

Alfbed  T.  Tcbneb, 

City  Treasurer. 




j\\  <)v^A.>  /J^fK.-  >  \  1  ■  '1.  S .  S.0 

[Document   1  — 1895.] 







JANUARY    7,    1895. 


Rockwell  and  CHxmcHiLL,  City  Printsrs. 




[Document   1  — 1895.] 







JANUARY    7,     189J. 

^^-    •'^     i-^     '  ^^ 

BOST(D>]SriA    4?/ 

Rockwell  and  Churchill,  City  Printers. 


I     JCI    IZ  16SL 

^.  /^.^Su^w. 


In  Board  of  Aldermen, 

January   7,   1895. 

Ordered^  That  His  Honor  the  Mayor  be  requested  to 
furnish  the  City  Council  with  a  copy  of  his  inaugural 
address  for  publication. 

Passed.     Sent  down  for  concurrence. 

At.fheus  Sanford, 


In  Common  Council,  January  7,  1895. 


Chris.  F.   O'Brien, 

A  true  copy. 


J.   M.   Galvin, 

Oity  Clerk. 


€kntlemen  of  the  City  Council: 

It  is  customary  for  the  Mayor,  upon  assuming 
oflBice,  to  state  to  the  City  Council  the  condition  of 
the  city,  and  to  make  such  recommendations  as  his 
experience  and  judgment  may  suggest.  Accordingly 
I  ask  your  attention  to  the  result  of  such  investiga- 
tion as  I  have  been  able  to  make  into  our  municipal 
affairs,  and  to  my  views  upon  what  I  consider  the 
most  important  subjects  demanding  action  at  your 
hands.  Any  statement  of  the  city's  financial  condi- 
tion must,  of  necessity,  be  based  on  information 
gleaned  from  the  reports  or  communications  received 
from  the  heads  of  the  various  departments. 

The  policy  of  the  new  administration  cannot  be 
fully  discussed  at  this  time,  the  interval  between 
election  and  inauguration  being  too  short  for  an 
exhaustive  study  of  the  problems  that  confront  a 
new  executive.  I  shall,  however,  during  the  year 
give  my  best  efforts  to  their  solution. 

I  shall  refrain  at  this  time  from  criticism  of  the 
departments,  as  the  ordinance  requires  a  report  from 


each  officer  or  board  in  charge  of  a  department 
immediately  after  the  close  of  the  financial  year, 
January  31st.  From  these  reports  should  be  obtamed 
a  definite  knowledge  of  what  has  been  accomplished, 
together  with  the  receipts  and  expenditures  of  each 
department.  An  opinion  given  now  might  do  those 
in  charge  of  the  departments  an  injustice.  I  shall 
insist,  however,  that  the  requirements  of  the  ordi- 
nance be  strictly  complied  with,  especially  as  to  the 
time   when  the   reports   shall  be  made. 

To  you  belong  the  legislative,  to  me  the  executive, 
functions  of  the  government,  and  although  the  line 
of  separation  is  often  finely  drawn,  it  is  not  my 
intention  to  encroach  upon  your  field. 


The  revenue  of  the  city  and  county  may  be  classed 
under  two  heads ;  namely,  revenue  raised  by  taxation, 
and  revenue  derived  from  other  sources. 

The  revenue  for  the  coming  year  can  be  fairly 
estimated   as   follows: 

Prom  taxation  ($9  limit)                  .  $7,891,149  00 

From  taxation  for  county  expenses  .  425,000  00 
Income    of     the    city    from    other 

sources 2,598,665  00 


A  total  of  .        .  .     $10,914,814  00 


The  amount  needed  for  interest  and  sinking-fund 
requirements  of  the  city  debt  must  be  raised  by 
taxation,  and  is  not  included  in  the  nine-dollar 
limit  law.  For  the  coming  year  it  will  be  $3,- 
098,229,  which,  added  to  the  sum  given  above,  viz., 
$10,914,814,  makes  a  total  of  $14,013,043,  which 
the  city  government  can  appropriate  for  the  annual 
expenditures  for  the  city  of  Boston  and  the  county 
of   Suffolk. 

The  estimate  for  the  total  county  expenses  for 
1894-95  is   1734,750. 

Money  derived  from  loans  within  the  debt  limit 
can  be  used  for  permanent  improvements  only,  un- 
less the  Mayor  certifies  that  public  necessity  requires 
the  borrowing  of  the  same  for  current  expenses. 
The  borrowing  capacity  of  the  city  during  the 
coming  year  will   be    |2,337,074. 

Loans  outside  the  debt  limit  can  be  made  only 
by  legislative  authority,  and  application  to  the  Leg- 
islature for  this  authority  should  be  made  only 
when  there  exists  a  need  that  cannot  otherwise  be 
provided   for. 

The  appropriations  made  to  meet  the  interest  on 
the  city  debt,  exclusive  of  water  debt,  and  for  the 
sinking-fund  and  debt  requirements,  reached  the 
highest  mark  in  1892-93,  when  the  amount  was 
$3,150,420.     For  the  year  1894-95  the   amount  is 


$2,826,068.      For  the  year  1895-96  the  amount  will 
be   $3,098,229. 

The   following  table   shows  the  financial  condition 
of  the   city  December  31,  1890: 

Gross  debt  of  the  city  .         .  $55,440,361  06 

Sinking-fund    and    other    redemption 

means     .......     24,386,864  08 

Net  debt $31,053,496  98 

Add  loans  authorized  but  not  issued.         789,000  00 

Net   debt   and  loans    authorized    but 

not  issued $31,842,496  98 

The  following  table   shows  the  financial   condition 
of  the  city  December  31,  1894: 

Gross  debt $58,654,211  56 

Sinking-fund    and    other    redemption 

means 22,160,347  14 

Net  debt $36,493,864  42 

Add  loans  authorized  but  not  issued, 

not  including  loans    authorized  by 

Rapid  Transit  Act  ...       5,490,000  00 

Net   debt   and   loans    authorized   but 

not  issued $41,983,864  42 

Increase  in   the  net  debt   during  the 

past  four  years        ....     $5,440,367  44 


Increase   in   the   net   debt   and  loans 

authorized    and   not   issued   during 

the  past  four  years  .         .  $10,141,367  44 

The    cash    on    hand     December    31, 

1890,  was $5,939,227  36 

The    cash    on    hand    December    31, 

1894,  was $3,135,663  49 

Let  us  face  the  fact  squarely  at  the  outset  that 
the  net  debt  must  increase  during  the  coming  year 
on  accoimt,  not  of  what  we  are  yet  to  do,  but  on 
account  of  what  has  been  done  already.  It  will  in- 
crease because  of  the  charges  imposed  upon  us  by 
the  Rapid  Transit  Act  and  by  the  issuing  of  bonds 
now  authorized  to  pay  for  work  already  commenced 
and  from  other  causes.  The  interest  and  sinking- 
fund  requirements  of  these  loans  will  also  necessarily 
increase  the  tax-rate. 

The  amount  borrowed  within  the    debt    limit    for 

it  five  years  is 

as  follows: 


$2,281,000  00 


1,090,000  00 


1,992,800  00 


3,091,025  00 


3,309,800  00 

A  total  of 

.      $11,764,625  00 



As  stated  above,  there  can  be  borrowed  within 
the  debt  limit  during  1895  about  $2,337,074. 

The  amount  borrowed  outside  the  debt  limit  (other 
than  for  water-works)  during  the  past  five  years  is 
as  follows: 


$2,411,000  00 


1,389,000  00 


650,000  00 


2,732,000  00 


1,789,000  00 

A  total  of 

$8,971,000  00 

The  assessors'  valuation  for  the  past  five  years 
and  the  abatements  thereon,  allowed  previous  to 
December  31,  1894,  are  as  follows: 




1890      . 

$822,460,400  00 

$7,847,100  00 


855,420,414  62 

8,152,559  00 

1892      . 

895,997,104  00 

10,153,300  00 

1893      . 

924,446,151  72 

9,821,400  00 


928,461,442  53 

6,839,200  00 


.      $4,426,785,512  87 

$42,813,559  00 

Less  aba 

tements,        42,813,559  00 

$4,383,971,953  87 

The   average  valuation  for  the  past  five  years  is 

^    • 



$876,794,390.  Upon  this  average  valuation  the 
tax  for  1895  will  be  assessed  under  the  nine-dol- 
lar limit  law.  The  average  valuation  for  the  five 
years  preceding  1894  was  $850,076,262.  Upon 
that  average  valuation  the  tax  for  1894  was 
assessed.  The  increase  in  the  amount  that  may  be 
raised  under  the  nine-dollar  limit  law  in  1895  over 
the  amount  raised  in  1894  will  be  $240,463,  and 
the  increase  from  other  sources  will  be  about  $108,- 
665.  Does  the  increase  in  revenue  equal  the  increased 
demands  upon  our  finances  ?  Assuming  that  no  more 
money  was  appropriated  last  year  than  was  neces- 
sary, we  have  only  $349,128  additional  to  spend  this 
year.  Under  Chapter  177  of  1887  the  Board  of  Police 
is  authorized  to  appoint  a  reserve  force  of  police  as 
authorized  by  the  city.  The  Board  of  Police  is  now 
authorized  to  appoint  one  hundred  men  as  a  reserve 
force.  By  Section  2  of  said  Act  all  appointments  to 
the  regular  police  force  shall  be  made  from  the  re- 
serve force,  and  a  service  of  six  months  as  a  reserve 
officer  is  required  before  promotion.  Under  existing 
laws,  therefore,  it  will  not  be  possible  to  appoint 
during  the  present  year  more  than  200  of  the  321 
patrolmen  authorized  by  the  last  City  Council,  and 
this  addition  will  cost  for  the  term  of  service  to 
February  1,  1896,  about  $142,000.  With  the  open- 
ing    of   the    new    hospital    buildings    an    additional 


amount  of  from  $100,000  to  $115,000  must  be 
given  to  the  appropriation  for  current  expenses  in 
that  department,  the  schools  must  have  $100,000 
more  for  current  expenses.  Increased  appropriations 
will  be  absolutely  necessary  in  other  departments, 
which  will  more  than  use  up  the  additional  income. 


The  loan  of  $1,000,000  made  January  4,  1895, 
under  authority  given  by  Chapter  396  of  1894,  is 
the  last  loan  that  can  be  made  under  existing 
laws  for  park  purposes,  except  that  which  will  be 
required  to  pay  for  lands  taken  for  the  North  End 
park,  and  which  is  not  limited  in  amount.  Of  this 
$1,000,000  there  was  required,  December  31,  1894, 
$350,000  to  pay  judgments  then  outstanding,  to- 
gether with  settlements  agreed  upon  to  be  paid  after 
January  1,  1895.  To  pay  the  balance  due  on 
contracts  entered  into  prior  to  December  31,  1894, 
there  was  required  $250,000.  The  assessed  valua- 
tion of  lands  already  taken  for  which  verdicts  have 
not  been  given  is  $100,000,  but  judging  from  past 
experience  the  amount  required  to  pay  for  these 
lands  will  be  double  their  assessed  value,  or  $200,- 
000.  It  is  apparent,  therefore,  that  of  the  $1,000,- 
000  loan  above  mentioned,  the  sum  of  $800,000 
was  already  mortgaged  December  31,  1894,  leaving 
a  balance  of  only  $200,000  for  future  expenditure. 


In  my  judgment  it  is  time  to  suspend  ithe 
further   acquisition   of  lands   for  park   purposes. 

The  work  already  commenced  should  be  finished. 
The  Strandway,  the  land  for  which  has  already 
been  taken  and  paid  for,  should  not,  in  my 
judgment,  be  built  until  our  financial  condition 
will  .  warrant  the  great  outlay  needed  for  the 
undertaking.  My  knowledge  of  the  work  already 
commenced  and  necessary  to  place  the  land  already 
acquired  in  condition  for  the  present  requirements 
of  the  system  is  too  limited  for  me  to  state 
positively  whether  or  not  we  can  get  along  with- 
out further  loans  outside  the  debt  limit,  but  I 
believe  that  authority  for  further  loans  for  park 
purposes  should  not  be  asked  of  the  Legislature 
at  its  present  session,  if  we  can  possibly  avoid  it. 
To  maintain  the  parks  we  already  have  will  require 
during  the  present  year  $175,000,  according  to  the 
estimate  of  the  department,  and  their  maintenance 
coming  out  of  the  revenue  derived  from  taxation 
and  income  of  the  city  is  a  heavy  charge  to  meet. 
I  believe  in  our  parks,  and  enjoy  them  in  common 
with  others,  but  am  of  the  opinion  that  we  have 
expended  and  undertaken  in  this  direction  all  that 
we   can  afford   at   the   present   time. 

In  addition  to  our  own  system  of  parks,  which 
have   already  cost  over    $12,000,000,   the    Common- 


wealth  in  1893  appointed  a  board  known  as  the 
Metropolitan  Park  Commission,  who  have  already 
taken  about  six  thousand  acres  of  land  for  park 
purposes  in  "Greater  Boston;"  and  it  is  now  in 
their  power,  limited  only  by  appropriation  by  the 
Legislature,  to  connect  the  large  areas  already 
acquired,  and  those  to  be  acquired,  by  boulevards 
and  parkways  encircling  the  city  of  Boston  and 
running  through  the  cities  and  towns  of  the 
Metropolitan  District.  The  Legislature  has  already 
authorized  this  commission  to  expend  $2,300,000, 
but  even  more  money  will  be  needed  to  carry  on 
its   work. 

Now,  by  statute  the  city  of  Boston  is  to  pay  for  the 
first  five  years  fifty  per  cent,  of  the  whole  sinking- 
fund  and  interest  requirements  of  the  loans  issued 
under  the  authority  of  the  act  establishing  the  board. 
After  the  first  five  years,  the  proportion  Boston  is 
to  pay  is  to  be  fixed  by  a  commission,  but  it 
probably  will  not  be  less  than  fifty  per  cent.  The 
city's  proportion  of  the  Metropolitan  sewerage  loan, 
the  armory  loan,  and  the  expense  of  abolishing 
grade  crossings  already  amounts  to  a  considerable 
sum,  and  next  year  our  payments  to  the  State 
must  reach  a  sum  which  may  seriously  affect  the 
finances   of  the   city. 



Under  the  acts  relating  to  the  laying  out  and 
the  construction  of  highways  and  private  ways, 
and  the  making  of  sewers  in  the  city  of  Boston, 
passed  in  the  years  1891-94,  commonly  known 
as  the  "  Board  of  Survey  Act,"  there  have  been  laid 
out  Blue  Hill  avenue,  Columbus  avenue,  Huntington 
avenue.  Commonwealth-avenue  extension  over  South 
street,  Brighton,  and  various  other  streets.  Sewers 
have  also  been  built,  and  other  sewers  ordered  on 
which  work  has  not  yet  commenced.  There  have 
also  been  incurred  expenses  for  the  maintenance  of 
the  Board  of  Survey.  The  following  table  shows 
the  land  damages  awarded  and  estimated  by  the 
Street  Commissioners,  the  estimated  cost  of  con- 
struction of  the  streets  and  sewers,  and  the  expenses 
of  the  Board   of   Survey: 

■      4 



Bine  Hill  ayenne  .... 

ColambuB  aTenue  .... 

Huntington  avenue    .     .     . 

Commonwealth-avenue  ex- 
tension over  South  street, 

Sewers,  to  complete 

Sewers    ordered    but     not 

Various  other  streets      .     . 

Board  of  Survey  expenses, 
estimated  for  1896      .     . 

Land  DamagM. 

#76,875  00 
926,986  00 
230,353  00 

44,191  00 

$1,278,405  00 

Street  and  Sewer. 

•500,000  00 
825,000  00 
350,000  00 

70,000  00 
102,000  00 

178,000  00 
185,227  00 

•1,710,227  00 


#576,875  00 

1,251,986  00 

580,353  00 

114,191  00 
102,000  00 

178,000  00 
185,227  00 

70,000  00 

$3,058,632  00 

The  following  table  shows  the  balance  of  the 
appropriation  December  31,  1894,  with  the  amount 
that  can  be  borrowed  imder  these  acts  during  the 
year  ending  December  31,  1895,  and  the  estimate 
of  the   amount  of  the   sinking-fund : 

Balance  of  appropriation    . 
Loan  authorized  but  not  negotiated  . 
Loan  that  may  be  authorized    . 
Sinking-fund,  estimated 

Total   amoimt  available  between  De- 
cember 31,  1894,  and  December  31, 

lo«7U  ..•••• 

$121,357  41 

1,000,000  00 

500,000  00 

300,000  00 

$1,921,357  41 


It  will  be  seen  from  these  tables  that  the  es- 
timated amount  of  money  required  to  complete 
these  avenues  and  sewers  is  $3,058,632,  and  with 
the  amount  that  will  be  available  to  December  31, 
1895,  is  $1,921,357.41,  or  $1,137,274.59  less  than 
the  amount  estimated  to  be  required  for  the  land 
damages  and  construction.  We  shall,  therefore,  not 
only  be  unable  to  construct  the  avenues  and 
sewers  already  laid  out,  but  we  shall  be  unable  to 
spend  anything  on  new  streets  and  sewers  from 
the  funds  obtained  under  this  act  if  we  decide 
to  spend  all  our  available  means  on  these  under- 
takings  already   commenced. 

I  commend  to  the  careful  consideration  of  the  City 
Council  the  report  of  the  Committee  on  School-houses 
recently  made  to  the  School  Committee,  from  which 
it  appears  that  the  school  accommodations  furnished 
by  the  city  of  Boston  for  the  education  of  its  youth 
have  not  kept  pace  with  the  growth  of  the  city, 
and  that  the  amount  of  money  "now  needed"  for 
the  purchase  of  sites  and  the  erection  of  school-houses 
is  $2,357,000 ;  also,  that  the  sanitary  condition  of  some 
of  the  school-houses,  especially  the  older  buildings,  is 
bad.  The  amount  of  money  estimated  to  be  required 
immediately  to  perfect  the  sanitary  condition  of  our 
school-houses  is  $100,000.  It  also  appears  from 
this  report  that   the    city    is    now    paying    in    the 


neighborhood  of  $20,000  per  year  for  hired  rooms 
for  the  accommodation  of  upwards  of  2,000  children. 
These  rooms  are  in  buildings  which  were  not  con- 
structed for  schools,  and  are  consequently  wanting 
in  the  proper  sanitary  arrangements  and  ventilation. 
They  are  improperly  lighted  and  heated,  and  in 
general  are  not  adapted  for  school  purposes.  When- 
ever one  of  these  buildings  is  taken  a  large  outlay 
of  money  is  required  to  put  it  into  even  passable 
condition  for  the  use  of  the  pupils.  It  wovdd 
appear,  therefore,  that  the  city  of  Boston  is  paying 
in  the  way  of  rent  for  hired  buildings  for  schools 
a  sum  of  money  which  would  nearly,  if  not  quite, 
equal  the  interest  on  $500,000  at  4  per  cent,  per 

If  the  figures  and  facts  given  in  this  report  are 
to  be  relied  upon  (and  we  may  assume  that  they  are, 
because  the  committee  making  this  report  are  in  a 
position  to  know  the  facts),  it  will  be  impossible  for 
the  City  Council  to  provide  from  the  tax  levy  or 
from  loans  within  the  debt  limit  so  large  an  amount 
of  money  in  the  next  few  years  for  this  purpose, 
taking  into  consideration  the  many  other  require- 
ments upon  our  finances.  It  appears  to  have  been 
the  judgment  of  the  last  City  Coimcil  that  money 
for  this  purpose  be  borrowed  outside  the  debt  limit, 
and   an   order  was  passed  requesting  the   Mayor  to 


petition  the  Legislature  for  that  authority.  The 
City  Council  might  well  consider  also  the  source 
from  which  to  derive  the  means  to  maintain  these 
schools  (even  when  built)  up  to  the  proper  stand- 
ard of  efficiency  as  regards  teachers,  attendants, 
repairs,  and  supplies,  while  the  calls  upon  our 
limited  means  are  so  great  from  the  many  other 


The  demand  for  a  new  House  of  Correction  for 
Suffolk  County  is  imperative,  and  presents  another 
problem  for  solution.  The  resources  of  the  city 
must  be  further  taxed  to  supply  this  demand.  I 
sincerely  hope  that  the  necessary  funds  will  be 
provided  to  erect  a  prison  that  will  be  a  credit 
to  the  city;  a  prison  constructed  upon  the  most 
approved  plans  for  the  scientific  and  humane  treat- 
ment  of   its   inmates. 


The  park  police  should  be  placed  under  control 
of  the  Board  of  Police,  so  that  the  entire  police 
force  may  be  under  one  head,  thus  concentrating 
responsibility  and  avoiding  any  conflict  of  authority. 
This  change  would  not  increase  the  number  of  men 
patrolling    the    different    districts,    but    the    officers 


serving  as  park  police  could  perform  duty  in  case 
of  emergency  outside  the  park  limits,  which  under 
the  present  arrangement  they  cannot  do.  In  effect- 
ing this  change,  the  men  who  are  now  serving  as 
police  oflScers  under  the  Park  Department  should 
be  transferred  without  being  required  to  undergo 
examination.  The  Police  Department  is  very  much 
in  need  of  more  commodious  headquarters  for  the 
transaction  of  its  business.  The  building  used  for 
headquarters  in  Pemberton  square  was  formerly  a 
dwelling-house,  and  in  the  number  and  size  of  the 
rooms  is  inadequate  to  the  demands  of  the  depart- 
ment. I  am  informed  that  103  officers,  clerks,  and 
other  employees  are  now  accommodated  at  head- 
quarters, and  that  the  average  number  of  visitors 
to  headquarters  per  day  is  between  700  and  1,000. 
I   commend   this   subject  to  your  consideration. 


In  view  of  the  financial  condition  of  the  city,  and 
the  fact  that  the  amount  of  money  received  annually 
by  way  of  taxes  on  the  increase  in  valuation  is  not 
equal  to  the  annual  increase  in  expenditures,  I  recom- 
mend that  authority  be  given  to  the  Mayor  to  appoint, 
subject  to  confirmation  by  the  Board  of  Aldermen,  a 
paid  commission  of  three  citizens  of  Boston  to  ex- 
amine into  the  finances  of  the  city,  to  report  their 



findings  in  writing  within  three  months  of  the  date 
of  their  appointment;  to  recommend  what  changes, 
if  any,  are  necessary  in  the  laws  governing  the  sink- 
ing-funds, in  the  laws  governing  taxation,  in  the  laws 
governing  the  loan  power  of  the  city,  and  in  the  gen- 
eral financial  methods  of  the  city.  The  term  of  oflBce 
of  said  commissioners  should  expire  when  their  report 
is  presented  to  the  Mayor.  The  expense  necessary  for  I 
the  salaries  of  the  commissioners  and  for  the  prosecu- 
tion of  their  work  should  be  charged  to  the  appro- 
priation for  incidental  expenses  of  the  City  Council. 
The  salaries  and  amounts  allowed  for  expenses  of  the 
commission  should  be  determined  by  the  Mayor. 


The  election  machinery  of  this  city  is  controlled  by 
the  Mayor,  the  Board  of  Aldermen,  the  City  Clerk, 
the  Registrars  of  Voters,  and  the  Superintendent  of 
Public  Buildings.  The  details,  however,  are  in  charge 
of  the  City  Clerk  and  the  Registrars  of  Voters. 

To  determine  contested  nomiaations  the  City  Solic- 
itor is  also  joined  with  the  City  Clerk  and  the  Regis- 
trars of  Voters.  The  machinery  is,  in  my  opinion, 
too  cumbersome,  the  responsibility  too  much  divided, 
and  the  expense  greater  than  is  necessary.  The 
City  Clerk,  on  whose  office  the  greater  part  of  the 
work   falls,    has   without  this   enough   to   do   to    at- 



tend  to  the  routine  duties  of  his  office,  which  is 
the  record  office  of  the  city.  Additional  duties, 
entailed  by  the  Australian  ballot  law  and  the 
Caucus  Act,  greatly  interfere  with  and  retard  the 
routine  work  of  the  office,  to  the  disadvantage  of 
every  person  having  business  there,  and  at  certain 
seasons  of  the  year  place  upon  the  City  Clerk  and 
his  assistant  a  responsibility  greater  than  they 
should  be  called  upon  to  bear.  I  think  every 
other  great  city  in  the  country  has  a  Board  of 
Election  which  has  charge  of  the  whole  election 

I  believe  that  the  city  of  Boston  should  have  a 
Board  of  Election,  consisting  of  four  commissioners, 
selected  two  from  each  of  the  great  political 
parties,  appointed  by  the  Mayor  for  a  term  of  five 
years,  and  subject  to  removal  only  for  cause  by  the 
Mayor,  with  the  approval  of  the  Civil  Service  Com- 
missioners. Said  board  should  have  and  exercise 
all  the  powers  and  duties  conferred  by  law  upon 
the  Mayor,  Board  of  Aldermen,  City  Clerk,  and 
Registrars  of  Voters  relating  to  the  preparation  of 
ballots,  the  care  of  ballot-boxes,  the  registration  of 
voters,  the  recounting  of  ballots,  and  determining 
results,  and  all  other  matters  relating  to  elections 
in  the  city,  and  also  the  duties  of  the  Registrars 
of    Voters    in    the    preparation    of     the     jury    list. 


Experience  has  shown  that  the  Caucus  Act  needs 
further  amending,  and  when  amended  all  the  duties 
now  imposed  upon  the  City  Clerk  or  other  city 
officers  by  said  act  should  be  performed  by  the 
Board  of   Election. 

Some  provisions  should  be  made  that,  in  the 
determination  of  contested  nominations  and  other 
matters  where  the  board  is  divided  equally  in  its 
decision,  a  justice  of  some  court  should  be  joined 
to  the  board  to  cast  the  deciding  vote.  The 
enactment  of  a  law  establishing  a  Board  of  Elec- 
tion must  of  necessity  abolish  the  Board  of  Registrars 
of  Voters. 

This  matter  of  a  Board  of  Election  I  believe  to 
be  one  of  the  changes  most  needed  in  our  system  of 
government,  and  one  which  will  meet  with  the 
approval  of  every  person  who  has  given  the  matter 
any  thought,  or  who  from  experience  knows  of  the 
difficulties  which  arise  under  the  present  system. 


Under  the  present  ordinances  of  the  city  the  Bos- 
ton Water  Board  has  charge  of  the  Water-Supply 
Department  only,  while  another  department  is  main- 
tained for  the  purpose  of  assessing  rates,  making 
contracts  for  the  use  of  water,  receiving  applications, 
examining  water-fixtures,  and  supervising  the  use   of 


water.  This  second  department  is  known  as  the 
Water-Income  Department,  and  is  under  the  charge 
of  the  Water  Registrar.  I  do  not  approve  of 
this  arrangement.  The  expense  is  too  great  and 
responsibility  is  divided.  I  recommend  that  the 
Water-Income  Department  be  abolished,  and  that 
all  the  powers  and  duties  of  the  Water  Registrar 
be  given  to  the  Water  Board  or  its  successor. 

This  consolidation  of  the  two  water  departments 
into  one  will  save  expense,  concentrate  responsibility, 
and  increase  efficiency.  In  1875  the  City  Council 
was  authorized  to  unite  the  Cochituate  and  Mystic 
Water  Boards,  and  in  March,  1876,  an  ordinance 
to  establish  the  Boston  Water  Board  was  passed. 
The  Water-Income  Department  was  created  by  ordi- 
nance. It  will  be  seen,  therefore,  that  the  very 
desirable  and  economical  change  here  recommended 
can  be  made  by  ordinance.  I  commend  the  matter 
to   your   careful   consideration. 


The  departments  of  the  city  can  be  still  further 
consolidated  by  joining  under  the  control  of  the 
City  Engineer,  the  Engineering  and  Surveying  De- 
partments. Both  departments  employ  men  skilled 
in  the  same  profession,  and  there  seems  to  be 
no   necessity   for   maintaining  two   separate   and  dis- 


tinct  organizations.  I  believe  this  consolidation 
should  be  made  in  the  interest  of  economy,  and  I 
recommend   it   for  your   consideration. 


I  recommend  that  the  Architect  Department  be 
abolished.  The  city  of  Boston,  unlike  some  of  the 
other  great  cities  of  the  country,  has  no  "board  of 
public  works,"  upon  whom  falls  the  responsibility  for 
the  construction  of  all  its  buildings.  On  the  con- 
trary, its  ailairs  are  managed  by  departments.  Each 
department  should  transact  all  its  business,  and  if 
appropriations  are  made  for  new  buildings  for  any 
department,  that  department  should  employ  an  archi- 
tect to  draw  the  necessary  plans  and  supervise  the 
work,  and  should  be  responsible  for  the  result. 

I  believe  that  competition  among  architects  would 
result  in  the  city's  obtaining  the  services  of  the 
best  men  in  this  profession,  that  the  style  and  char- 
acter of  our  public  buildings  would  be  improved,  and 
that  on  the  whole  the  work  would  be  performed 
more  expeditiously  and  .at  less  expense. 

I  wish  it  distinctly  understood  that  in  making 
this  recommendation  I  do  not  reflect  on  the  present 
City  Architect,  nor  on  any  of  his  predecessors  in 
the  office.  In  fact,  I  think  the  present  incumbent 
of  the   office  agrees  with   the   recommendation.     The 


salary  paid  the  City  Architect,  $3,500,  is  not,  in 
my  judgment,  sufficient  to  command  what  should 
be  the  exclusive  services  of  the  best  talent,  while 
the  buildings  erected  by  the  city  are  among  the 
most  expensive  and  noticeable.  That  we  have  in 
the  past  secured  temporarily  men  of  high  standing 
in  the  profession  is  no  guaranty  that  we  shall  be 
so  fortunate  in  the  future. 

The  frequent  changes  in  the  office  have  often 
made  it  necessary  for  an  incoming  architect  to  com- 
plete the  unfinished  work  of  his  predecessor  in  office, 
and  where  faults  in  construction  and  excessive  cost 
have  resulted  it  has  been  difficult  to  place  the 


I  believe  that  those  departments  now  under  the 
charge  of  three-headed  commissions  can  be  better 
and  more  economically  managed  by  one  man.  In 
every  commission  of  three  persons  there  is  danger 
that  some  one  mind  stronger  than  the  others  will 
govern,  and  yet  the  responsibility  is  so  divided  that 
it  is  impossible  to  hold  one  of  the  three  responsible 
for  the  acts  of  the  whole  number.  This  sentiment 
was  expressed  in  my  letter  of  acceptance,  and  I 
have  seen  no  reason  to  change  my  mind.  I  there- 
fore recommend  that  the  Board  of  Fire  Commis- 
sioners,    the     Board     of     Commissioners     of     Public 


Institutions,  and  the  Boston  Water  Board  be  abol- 
ished, and  that  these  departments  be  intrusted  to 
single,  responsible  heads,  with  salaries  sufficient  to 
command   the   services   of  the   best   men. 

Many  of  these  changes  will  require  action  by  the 
Legislature,  while  some  can  be  effected  by  ordinance. 
I  shall  shortly  transmit  to  the  City  Council  ordi- 
nances to  effect  the  results  which  can  be  effected  by 
ordinances,  if,  on  consultation  with  the  Law  De- 
partment, we  shall  find  that  to  be  the  better  course. 
I  shall  present  to  the  Legislature  such  bills  as,  on 
consultation  with  that  department,  we  shall  deem 


The  importance  of  the  rapid-transit  problem  be- 
comes more  and  more  apparent,  and  the  demand  for 
its  solution  more  imperative  each  year.  Yet  there  is 
danger  that  this  pressure  may  be  too  importunate. 
It  is  better  that  the  right  result  should  be  attained 
within  a  reasonable  time,  than  that  there  should  be 
undue  haste  and  costly  mistakes.  A  study  of  the 
work  and  plans  of  the  Boston  Transit  Commission 
convinces  me  that  the  confidence  of  the  State  and 
city  in  the  ability  and  judgment  of  its  members 
has  not  been  misplaced.  They  are  to  be  com- 
mended for  the  care  and  deliberation  with  which 
they  have  acted.     Their  decision  not  to  begin  actual 


constructive  work  until  they  have  carefully  considered 
the  many  details  of  this  problem  and  determined  the 
cost  and  probable  advantages  of  the  subway  which 
they  are  authorized  to  buUd^  gives  additional  strength 
to  their  conclusions.  The  citizens  of  Boston  will 
receive  with  great  satisfaction  the  statement  of  the 
Transit  Commission  now  for  the  first  time  made 
public,  that  the  revised  estimates  of  their  engineers 
show  that  the  building  of  the  subway,  according  to 
their  present  plans,  will  not  seriously  disturb  traffic, 
and  that  the  contemplated  subways  from  the  junction 
of  Shawmut  avenue  and  Tremont  street,  and  from 
the  vicinity  of  Park  square  to  Causeway  street,  can 
be  built  within  the  limit  of  the  appropriation 
specified   in   the   act   of   the   Legislature. 


One  of  the  pressing  needs  of  Charlestown  ought 
soon  to  be  satisfied.  The  broad  and  substantial 
bridge  which  is  to  be  built  over  the  Charles 
river,  under  the  direction  of  the  Transit  Com- 
mission, and  for  which  appropriations  have  now 
been  made,  will  add  materially  to  the  speed  and 
convenience  of  travel  between  Charlestown  and  the 
city  proper.  The  plan  now  practically  settled  upon 
by  the  commission  contemplates  building  this  bridge 
sufficiently  high    to    pass    over    the   Fitchburg   Rail- 


road  tracks  on  the  Charlestown  side,  and  to  allow 
the  free  passage  underneath  the  bridge  of  barges 
and  other  mastless  craft.  It  will  be  a  distinct 
public  gain  to  thus  enable  all  the  street  cars,  light 
vehicles,  and'  eighty  thousand  people  daily  crossing 
the  river  at  this  poiut  to  avoid  this  dangerous 
grade   crossing. 


One  of  the  most  important  duties  to  be  performed 
by  the  City  Council  during  the  present  year  is 
the  new  division  of  the  city  into  wards.  The 
law  requires  that  the  boundaries  of  the  wards  shall 
be  so  arranged  that  the  wards  shall  contain,  as 
nearly  as  can  be  ascertaiaed,  and  as  nearly  as 
may  be  consistent  with  well-defined  limits  to  each 
ward,  equal  numbers  of  legal  voters.  I  believe 
that  this  important  and  necessary  work  will  be 
approached  with  a  spirit  of  fairness  and  a  desire 
to  do  that  which  will  be  for  the  best  interests  of 
all  our  citizens,  and  without  thought  of  gaining 
party  advantages  by  the  changes.  This  duty  must 
be  completed  before  May  1,  and  as  the  subject 
will  require  much  study  and  thought,  the  work 
should  be   commenced   at   once. 

The  appended  table  may  prove  serviceable  to  the 
committee   having   the   matter   in   charge. 


The  questions  which  we  must  meet  and  pass  upon 
during  the  year  are  not  political  but  business  ques- 
tions. Let  us  approach  them  in  a  spirit  of  fairness 
and  with  a  desire  to  do  only  that  which  will  be  of 
the  greatest  advantage  to  the  city  we  love  so  well. 








10  .  .  . 

11  .  .  . 

12  .  .  . 
18  .  .  . 

14  .  .  . 

15  .  .  . 

16  .  .  . 

Total  25 


























5,611  I 






•     • 















1 ,027  ! 



•    • 



•    ■    • 







Pbb  Obnt. 




•  • 


•  • 


























Fn  Cbnt, 



CSty  Proper  .     . 
Boxbury  .     .     . 
South  Boston 
East  Boston  .     . 
Dorchester    .    . 
WestRoxbury  . 
Brighton  .     .     . 
Charlestown  .    . 











Wards  6,  7,  8,  9,  10,  11,  12,  16,  17,  18     ...     .  City  Proper. 

"       19,  20,  21,  22 Roxbury. 

^^      18,  14,  15 South  Boston. 

^^       1, 2 East  Boston. 

^^      24 Dorchester. 

*-^      28 West  Roxbury. 

'^      26 Brighton. 

'•*'      8, 4,  6       . Charlestown. 



[DOODUSMT    1  — 1896.] 







JANUARY    6,    1896. 



^^^  (coiniiTA.dx    M 

m^^  1680.  ^ 

Rockwell  and  Churchill,  City  Printers. 


CI  ir:  180. 

\  -  -    -  / 

O^U.    J/^,^^Xtv^ 


In  Boabd  of  Aldermen, 

January  6,  1896. 

Ordered  9  That  His  Honor  the  Mayor  be  requested  to 
furnish  the  Qty  Council  with  a  copy  of  his  Inaugural 
Address,  for  publication. 

Passed.     Sent  down  for  concurrence. 

In  Common  Council,  January  6,  1896. 
A  true  copy. 


John  T.  Priest, 

Assistant  Oity  Cfkrk. 


OerMemen  of  the  City  Council: 

Assuming  the  office  of  Mayor  without  previous 
experience  in  connection  with  the  municipal  gov- 
ernment of  Boston,  and  without  any  intimate 
knowledge  of  the  workings  of  the  administrative 
machinery  of  the  city,  I  shall  only  undertake  in 
making  my  inaugural  address  to  deal  with  some 
subjects  of  general  interest,  about  which  I  have 
definite  views. 

Entertaining  a  deep  appreciation  of  the  import 
tant  and  responsible  duties  devolving  on  the  Mayor 
under  the  present  city  charter,  and  of  the  honor 
conferred  by  the  citizens  of  Boston  upon  the  man 
whom  they  select  to  exercise  this  important  public 
trust,  it  will  be  my  endeavor  to  perform  these 
duties  with  care  and  firmness.  It  is  a  high 
privilege  for  any  man  to  be  the  chief  public  ser- 
vant of  half  a  million  people,  and  to  have  the 
opportunity  of  public  usefulness  which  accompanies 
the  powers  pertaining  to  such  service.  Having, 
possibly,  a  greater  reason,  even  if  it  be  sentimental, 


than  any  other  citizen  of  Boston  for  appreciating 
the  honor  of  succeeding  the  long  line  of  distin- 
guished  men'  who  have  occupied  the  ofl&ce  which  I 
assume  to-day,  I  have  every  incentive  to  endeavor  to 
win  an  honorable   place  among  them. 

Our  citizens  have  the  right  to  expect  that  the  ex- 
tension of  the  term  of  the  Mayor  to  two  years  will 
result  in  greater  independence  in  the  exercise  of  his 
powers.  In  a  two-year  term  of  office  a  Mayor  can 
make  a  sufficient  public  record  to  enable  him,  to 
retire  with  credit,  without  standing  for  reelection, 
and  he  may  therefore  fairly  be  expected  to  perform 
his  duties  with  less  reference  to  a  reelection  than 
has  heretofore  been  possible. 


It  wUl  be  my  desire  to  promote,  by  every  means 
within  my  power,  the  interest  of  the  citizens  at 
large  in  their   municipal   government,  and  to   invite 

^  their  cooperation,  in  every  practicable  maimer,  in  its 
administration  and  in  the  consideration  of  municipal 
problems.  The  numerous  organizations  among  our 
people,  formed  for  various  purposes,  ought  to  play 
an  important  part  in  the  work  of  keeping  the  cit- 
izen   in     touch    with     the    city    government,    and 

^  arousing  him  to  a  sense  of  his  vital  interest  in 
its  work.  It  will  be  my  purpose  to  welcome 
the    cooperation    of    all    organizations,    of    whatever 

HATOB'8    ADDBB88.  6 

character    or    membership,    which    are    prepared    to 
approach  mmiicipal   questions  in   a  public  spirit. 

In  some  foreign  countries  organizations  of  wage- 
earners  take  a  constant,  active,  and  intelligent  in- 
terest  in  mimicipal  questions,  and  some  of  their 
members  occupy  important  positions  and  render " 
useful  services  in  connection  with  city  governments. 
It  seems  to  me  that  similar  cooperation  may  well  . 
be  encouraged,  to  a  greater  extent  than  it  has  been  • 
in  the  past,  in  our  American  municipalities,  and  I 
shall  endeavor  to  promote  this  object.  The  wage- 
earners  of  the  community  furnish  a  large  proportion 
of  the  scholars  in  our  public  schools,  and  should 
take  a  more  active  interest  in  their  management, 
and  I  trust  that  the  candidacy  of  a  representative 
of  this  large  class  of  our  citizens  for  the  School 
Committee  at  the  recent  election  indicates  a  move- 
ment in  this  direction. 

While  the  views  of  any  individual  citizens  or 
organizations  can  only  be  given  such  weight  as 
they  may  be  entitled  to  upon  their  merits,  due 
regard  being  given  to  the  intelligence  which  they 
express,  I  shall  deem  it  my  duty  as  Mayor  of  the 
city  to  give  as  much  consideration  and  attention 
to  any  well-considered  views  or  plans  presented 
by  organizations  of  wage-earners  as  to  those  pre- 
sented by   any   other  body  of  citizens. 

6  matob'8  address. 

merchants'  municipal  committee. 

In  accepting  the  nomination  for  the  office  of 
Major,  I  expressed  the  opinion  that  the  most  im- 
portant  and  pressing  questions  which  now  concern 
the  citizens  of  Boston  relate  to  the  further  develop- 
ment of  the  city  as  a  centre  of  productive  industry, 
—  of  foreign  commerce,  domestic  trade,  and  local 
manufacturing  and  mechanical  production,  —  and  that 
the  attempt  to  secure  a  correct  understanding  of 
problems  of  such  complexity  and  magnitude,  and 
to  take  practical  municipal  action  to  meet  them, 
called  for  the  cooperation  of  our  most  broad-minded 
and  successful  business  men.  I  further  stated  my 
purpose  to  invite  the  important  business  organiza- 
tions of  the  city  to  choose  a  joint  representative 
committee,  whose  advice  and  counsel  should  be 
available  to  the  Mayor,  and,  through  him,  to  the 
City  Council,  the  Legislature,  and  the  public,  on 
business  questions  generally,  and  especially  those 
relating  to  commerce,  transportation,  manufactures, 
and  taxation. 

In  pursuance  of  the  plan  thus  suggested,  and 
with  the  object  of  establishing  a  strong  and  per- 
manent connecting  link  between  the  city  govern- 
ment and  the  leading  business  organizations  of 
the  city,  I  have  already  addressed  communications 
to  the  Associated  Board  of  Trade,  the  Boston 
Chamber  of  Commerce,  the  Boston  Clearing  House 


Association,  the  Boston  Merchants'  Association,  the 
New  England  Shoe  and  Leather  Association,  and 
the  Real  Estate  Exchange,  inviting  these  bodies  to 
appoint  delegates  to  a  committee  of  seven  mem- 
bers, which  I  propose  to  designate  as  the 
Merchants'    Mmiicipal    Committee. 

I  have  selected  these  organizations  after  con- 
sultation with  representative  business  men,  beUev- 
ing  that  each  of  them  is  of  such  a  character  as 
to  entitle  it  to  representation  upon  such  a 
committee,  and  that,  taken  in  the  aggregate,  they 
represent  the  organized  business  men  of  the  city. 
A  small  committee  of  seven  members  has  been 
fixed  upon  in  the  belief  that  it  will  prove  a 
more  efficient  working  organization  than  a  larger 
body.  While  the  Committee  may  report  directly 
upon  questions  of  minor  importance,  it  is  con- 
templated that  questions  of  more  general  interest 
will  be  submitted  to  the  organizations  represented 
in  its  membership,  so  that,  when  any  proposition 
submitted  has  been  considered  by  such  organiza- 
tions and  favorably  acted  upon  by  them,  it  will 
have  the  strength  of  the  biisiness  men  of  Boston- 
behind  it.  I  have  already  received  sufficient  infor- 
mal assurances  of  cooperation  on  the  part  of  the 
officers  of  nearly  all  of  the  above-named  organiza- 
tions to  make  me  feel  confident  that  the  Committee 
will  be  organized,  on  substantially  the  representative 

8  MATOB'S    ADDBE88. 

basis  above  outlined,  at  an  early  date.  The  busineas 
for  the  consideration  of  this  Committee  will  be  sub- 
mitted to  it  from  time  to  time  in  official  communi- 
cations from  the  Mayor.  I  shall  at  once  ask  its 
consideration  of  the  subject  of  the  proposed  consti- 
tutional limitation  of  the  indebtedness  of  cities,  and 
also  of  the  subject  of  securing  such  changes  in  the 
tax  system  of  the  Commonwealth  as  are  necessary 
for  promoting  the  industrial  development  of  the  city 
of  Boston.  While  it  will  only  be  within  my  power 
to  give  to  this  Committee  a  semi-official  standing,  by 
calling  upon  it  to  advise  the  Mayor  in  the  exercise 
of  certain  broad  functions  of  his  office,  chiefly  per- 
taining to  new  legislation  and  outside  of  his  routine 
executive  duties,  I  trust  that  its  value  as  an  auxil- 
iary to  the  regular  machinery  of  the  city  govern- 
ment may  be  recognized  by  the  City  Council  and  by 
the  Legislature. 

Whatever  may  be  thought  of  any  plan  looking  to 
the  closer  union  of  the  adjacent  towns  and  cities 
with  the  city  of  Boston  for  certain  common  purposes, 
it  will  generally  be  conceded  that  those  who  have 
their  business  interests  in  Boston,  while  residing  in  its 
suburbs,  have  the  same  interest  as  our  own  citizens 
in  everything  that  pertains  to  the  business  develop- 
ment and  industrial  expansion  of  the  city,  and  that 
in  the  consideration  of  such  questions  we  can  enlist* 
their  interest  with  profit  to  ourselves.    As  member- 


ship  in  the  above-mentioned  organizations  is  based 
upon  a  business  connection  with  the  city  of  Boston, 
and  not  upon  residence  within  ,its  limits,  the  Com- 
mittee will  act  as  a  direct  means  of  giving  our 
non-resident  business  men  an  influence  in  the  con- 
sideration  of  broad  municipal   questions. 


While  our  system  of  taxation  is  fixed  by  State 
legislation,  the  city  of  Boston  should  exert  its  influ- 
ence in  every  proper  way  to  secure  such  amend- 
ments to  the  tax  laws  as  will  bring  them  more 
into  harmony  with  the  needs  of  a  large  commercial 
centre,  brought  into  daily  competition  with  cities  in 
which  taxation  is  levied  ia  a  manner  far  less  bur- 
densome to  business  enterprise. 

The  Grovemor  of  the  Commonwealth,  in  his  recent 
inaugural  address,  has  recognized  the  evils  of  our 
present  tax  system,  and  has  forcibly  pointed  out  its 
injurious  influence  upon  the  industrial  development 
of  the  State.  "Our  laws,"  he  says,  "seem  to  bear 
oppressively  on  om*  business  and  industrial  enter- 
prises, which  should  be  especially  fostered  and  en- 
couraged as  the  source  from  which  most  of  our 
citizens  derive  their  livelihood."  He  further  points 
out  that  "experience  has  shown  that  there  is  no 
force  more  potent  in  bringing  industrial  development 
than  wise  and  liberal  laws  of  taxation."    These  words 


have  a  very  direct  and  important  application  to  the 
city  of  Boston,  and  in  such  application  I  desire  to 
give  them  my  hearty  endorsement.  The  city  gov- 
emment  of  Boston  and  the  representatives  of  the 
city  in  the  Legislature  can  in  no  way  more  effeo- 
tively  promote  the  development  of  the  trade  and 
the  manufacturing  and  mechanical  industries  of  Bos- 
ton than  by  using  every  endeavor  to  secure  more 
liberal  tax  laws,  and  thereby  enable  our  people  to 
meet  the  competition  of  their  commercial  and  indus- 
trial rivals  in  other  States.  As  soon  as  the  Mer- 
chants' Municipal  Committee,  above  referred  to,  is 
organized,  I  shall  invite  it  to  take  up  the  subject  of 
securing  such  needed  changes  in  our  tax  laws,  and 
I  trust  that  the  influence  of  the  Governor  of  the 
Commonwealth,  of  the  Speaker  of  the  House  of  Rep- 
resentatives,—  who,  in  reassuming  that  position,  ex- 
pressed views  similar  to  those  of  the  Governor, —  of 
the  Mayor  of  the  city  of  Boston,  and  of  the  busi- 
ness organizations  of  the  city,  supplemented,  as  I 
trust  may  be  the  case,  by  the  City  Council,  may  be 
effectively  united  upon  some  practical  and  compre- 
hensive plan,  which  will  secure  general  support. 

While  I  shall  be  ready  to  cooperate  in  any 
movement  which  may  tend  to  mitigate  the  evils 
caused  by  our  present  unscientific  and  defective 
system,  I  desire  to  express  my  personal  convic- 
tion that    in   order   to    accomplish   any  far-reaching 


benefits,  false  theories  of  taxation  must  be  absolutely 
abandoned.  I  believe  that  a  large  majority  of  the 
business  men  of  Boston  are  now  ready  to  support 
a  movement  to  place  upon  real  estate  all  taxes 
other  than  those  levied  upon  the  franchises  of 
quasi-public  corporations,  and  upon  the  estates  of 
deceased  persons,  and  that  the  real-estate  interests 
would  support  the  same  policy.  Taxation  levied 
upon  real  estate  distributes '  itself  through  the 
community  at  least  as  equitably  as  it  can  be  dis- 
tributed under  any  system,  whUe  it  has  the  great 
advantages  of  perfect  simplicity,  impossibility  of 
evasion,  and  absolute  freedom  for  business  develop- 

The  wage-earners,  who  constitute  such  a  large 
majority  of  our  population,  have  every  interest  in 
favoring  a  system  which  would  result  in  greatly 
stimulating  enterprise,  and  enlarging  the  field  for 
the  profitable  employment  of  labor  in  this  city. 
That  such  a  system  of  taxation  is  best  adapted 
to  the  wants  of  a  eonnnunity  ,.ch  a,  ou.  is'oot 
only  supported  by  theoretical  reasoning,  but  demon- 
strated by  the  practical  experience  of  such  great 
commercial  and  industrial  cities  as  New  York  and 
Philadelphia.  The  importance  of  the  object  is  so 
great,  that,  if  the  union  of  the  necessary  forces 
can  be  effected,  even  the  necessity  of  securing  an 
amendment     to     the     Constitution     should    not     be 


allowed  to  stand  in  the  way  of  making  the  effort. 
Such  a  Ynovement  should  be  based,  not  upon  an 
effort  to  protect  some  of  our  citizens  from  double 
taxation,  but  simply  upon  the  broad  ground  that 
a  system  of  taxation  laying  the  burden  only  upon 
property  which  cannot  move  away  will  prove  a 
*  benefit  to  all  classes  in  the  community,  give  an 
absolutely  free  field  for  business  expansion,  and, 
most  of  all,  help  those  who  are  dependent  for 
their  livelihood  upon  commercial,  mechanical,  and 
other  industrial  development. 


The  recent  acquirement  by  the  New  York,  New 
Haven,  &  Hartford  Railroad  Company,  lessee  of  the 
Old  Colony  and  Boston  &  Providence  railroad 
systems,  of  the  control  of  the  New  England  Rail- 
road, brings  up  for  immediate  consideration  the 
pressing  question  of  the  readjustment  of  freight 
and  passenger  terminals  on  the  south  side  of  the 
city.  The  business  interests  of  Boston,  in  my 
opinion,  would  be  as  greatly  benefited  by  some  such 
union  of  terminals  and  concentration  of  freight  and 
passenger  business  on  the  part  of  the  four  railroads 
entering  the  city  on  the  south  -side,  as  by  that  which 
has  already  taken  place,  with  such  beneficial  results, 
on  the  part  of  the  railroads  entering  the  city  from 
.the    north    side.      It    is    of    great    importance,    and 

MAYOR'S    ADDBE88.  13 

entirely  practicable,  that  the  freight  business  of  the 
three  above-named  railroads,  now  under  a  com- 
mon management,  should,  at  an  early  date,  be  con- 
centrated at  a  single  point,  easily  accessible  from 
the  business  section  of  the  city,  and  with  ample 
room  for  terminal  facilities,  not  only  for  the  present 
but  for  the  future. 

The  present  freight  yards  of  the  New  England 
Bailroad  Company  at  South  Boston  seem  to  me  to 
fulfil  these  requirements  better  than  any  other 
available  locality,  and  I  believe  that  it  would  be 
of  great  advantage  to  our  commercial  interests  to 
have  the  freight  which  is  now  always  crowded, 
and  often  delayed,  at  the  present  freight  stations 
of  the  Old  Colony  and  Boston  &  Providence  Rail- 
roads, handled  at  the   South  Boston  terminals. 

Such  a  transfer  of  freight  business  would  consider- 
ably relieve  the  congestion  of  the  crowded  streets 
through  which  the  trucking  to  and  from  these 
stations  is  now  mainly  conducted.  Plans  have 
already  been  made  for  the  track  connections  neces- 
sary to  bring  about  this  result.  But  in  the  opinion 
of  the  management  of  these  railroads  it  is  necessary, 
in  order  to  enable  this  concentration  of  freight  at 
the  South  Boston  yards  to  be  carried  out,  that  pres- 
ent grade  crossings  over  the  tracks  of  the  New 
England  Railroad  at  South  Boston  should  be  abol- 
ished,  and    that    future    grade    crossings   over  these 


tracks  should  be  prohibited  by  law.  If  the  New 
England  Eailroad  Company  uses  the  Old  Colony 
station,  or  a  new  union  station,  the  tracks  and 
terminals  west  of  A  street  can  be  discontinued, 
and  there  will  be  only  two  existing  grade  crossings 
to  abolish,  namely,  those  on  Congress  street  and  on 
West  First  street.  Aside  from  its  connection  with 
the  freight  terminals  already  mentioned,  the  aboli- 
tion of  the  grade  crossing  on  Congress  street,  and 
the  completion  of  this  street,  or  of  a  new  street  par- 
allel to  it,  as  a  thoroughfare  for  travel,  would  be 
a  great  benefit  to  a  large  section  of  South  Boston 
by  reducing  its  transit  distance  from  the  business 
centre.  If  the  abolition  of  this  grade  crossing  will 
make  it  possible  to  realize  the  great  advantages  of 
securing  a  concentration  of  the  freight  busineas 
above-mentioned  at  South  Boston,  in  addition  to  its 
other  advantages  above  referred  to,  I  should  be 
decidedly  in  favor  of  it,  if  the  work  can  be  done 
at  a  reasonable  expense  to  the  city.  I  also  believe 
that  the  city  should  give  its  assent  to  such  proper 
legislation  as  might  be  found  necessary  to  protect 
these  terminals  from  having  streets  laid  out  at  any 
future  time  to  cross  them   at  grade. 

While  a  transfer  of  the  freight  business  from 
the  Old  Colony  and  Providence  stations  would  afford 
much  needed  relief  to  the  present  congestion  of 
passenger  business  at  both  of  these  terminals,  a  new 

MATOB'S    ADDRESS.  '       s     15 

union  passenger  station,  for  the  use  of  at  least  the 
Old  Colony  and  New  England  Railroads,  is  a  neces- 
sity of   the  immediate  future. 

I  believe  that  in  accordance  with  the  findmgs  of' 
the  Rapid  Transit  Commission  of  1891  it  will  ulti- 
mately be  found  desirable  to  concentrate  all  of  the 
passenger  traJBic  upon  the  south  side  of  the  city  in 
one  union  station,  to  be  located  upon  or  near  the 
sites  of  the  present  Old  Colony  and  Boston  & 
Albany  stations  on  Ejieeland  street.  It  seems  to  * 
me  worthy  of  serious  consideration  whether  it  will 
not  be  advisable  for  the  city  government  to  take 
advantage  of  the  present  new  conditions  of  railroad 
management  by  endeavoring  to  secure,  if  possible, 
the  passage  of  compulsory  legislation  to  effect  this 
great  improvement.  The  magnitude  of  the  interests 
involved,  and  the  need  of  action  upon  a  comprehen- 
sive plan,  may  be  appreciated  from  the  fact  that 
584  trains  a  day  now  pass  in  or  out  of  the  four 
passenger  stations  on  the  south  side  of  the  city, 
carrying  80,000  people  on  an  average,  while  on  the 
north  side  of  the  city  there  are  only  540  trains  a 
day  entering  or  leaving  the  Union  station  which  has 
already  been  provided. 

Most  of  the  grade  crossings  within  the  city  limits 
have  already  been  abolished.  The  early  abolition 
of  the  grade  crossing  on  Dorchester  avenue  over  the 
Old  Colony  Railroad   tracks  is  very  desirable,  and  I 


shall  press  action  on  the  part  of  the  city  to  attain 
this  object  as  soon  as  possible.  The  management 
of  this  railroad  is  desirous  of  carrying  out  this  im- 
portant  improvement  upon  any  plan  which  seems  to 
it  to  be  practicable  and  not  to  involve  unreasonable 
expense.  The  plans  thus  far  prepared  have  not 
proved  mutually  satisfactory  to  the  city  and  to  the 
railroad  company,  but  I  trust  that  some  plan  may 
shortly  be  perfected  and  agreed  upon  which  may 
enable  this  work  to  be  carried  out  by  voluntary 
cooperation  between  them.  The  grade  crossings  in 
the  Charlestown  district  are  in  a  fair  way  of  being 
soon  discontinued,  and  I  am  informed  that  the 
railroads  are  working  vigorously  to  that  end  in 
harmony  with  the  officials  of  the  city.  I  am  in 
cordial  sympathy  with  the  earnest  desire  of  the 
citizens  of  this  district  that  these  grade  crossings 
be  speedily  removed,  and  I  shall  endeavor  to  ac- 
complish this  object  as  soon  as  possible,  so  far 
as  the  action  of  the  city  government  can  be  instru- 
mental in  effecting  it.  The  question  of  securing 
the  abolition  of  grade  crossings  in  the  East  Boston 
district  is  more  difficult,  but  the  recent  action  of 
the  Board  of  Aldermen  in  petitioning  therefor  has 
led  to  an  energetic  attempt  to  solve  the  problem, 
and  if  the  citizens  of  this  district  can  agree  upon  a 
proper  plan  I  shall  be  glad  to  give  it  my  active 
support.      The    remaining    grade    crossings    on    the 


lines  of  the  Old  Colony  and  the  New  England  Rail- 
roads should  be  discontinued  as  rapidly  as  financial 
considerations  will  permit,  and  the  recent  union  of 
management  between  the  New  England  and  the 
New  York,  New  Haven,  &  Hartford  Railroads  should 
facilitate  the  accomplishment  of  this  desirable 


The  problem  of  devising  a  better  system  for 
the  election  of  aldermen,  and  securing  its  adoption 
by  the  Legislature,  is  one  which  should  receive 
our  earnest  attention.  Within  recent  years  we 
have  tried  successively  election  by  districts,  election 
at  large  by  plurality  vote,  and  the  present  system 
of  election  at  large  by  restricted  vote,  insuring 
minority  representation.  I  believe  that  in  the 
general  opinion  of  our  citizens,  and  certainly  in 
my  own,  the  present  system  is  decidedly  the  worst 
of  the  three,  owing  to  the  fact  that  it  makes  a 
nomination  by  either  of  the  two  leading  political 
parties  absolutely  insure  an  election  so  far  as  five 
out  of  the  seven  candidates  whom  it  has  been 
customary    to    nominate    are    concerned. 

If  the  minority  representation  feature  of  the 
present  law  is  to  be  maintained,  I  think  that 
some  advantage  at  least  would  be  gained  by 
requiring   any  political  party  which  placed   a  ticket 



in  the  field  to  nominate  a  full  ticket  of  twelve 
candidates.  I  doubt,  however,  whether  the  pres- 
ent system  would  produce  results  satisfactory  to 
the  citizens  generally,  or  to  the  members  of  either 
of  the  leading  political  parties,  even  with  this 
amendment.  I  believe  that  we  should  either  re- 
turn to  the  system  of  election  at  large  by  simple 
plurality  vote,  thus  securing  at  least  the  benefits 
of  undivided  party  responsibility,  or  else  make  at 
least  a  trial  of  some  system  of  proportional 
representation.  While  much  can  be  said  for  the 
latter  system  from  the  standpoint  of  political 
theory,  I  think  it  decidedly  questionable  whether  it 
would  work  satisfactorily  in  practice,  and  whether 
it  would  not  result  in  establishing  the  representation 
of  classes,  and  in  substituting  for  a  somewhat  coher- 
ent majority,  —  upon  which  some  responsibility  for 
the  enactment  of  necessary  municipal  legislation  can 
be  placed,  —  a  number  of  small  groups  or  indi- 
viduals, representing  so  many  constituencies,  of  such 
a  varying  character,  that  it  would  be  extremely 
difiicult  to  secure  harmony  of  action  or  proper  re- 
sponsibility for  legislation.  Proportional  representation 
might  also  open  the  door  for  even  more  log-rolling 
and  trading  than  takes  place  under  the  present  sys- 
tem, and  increase  the  friction  between  the  executive 
and  legislative  branches  of  the  city  government. 
But   whether   it    is    better   to   return   to  the   simple 


plurality  system,  or  to  try  the  experiment  of 
proportional  representation,  it  seems  to  me  that  it 
would  be  advisable  to  elect  the  members  of  the 
board  for  a  term  of  at  least  two  years,  half  of 
their  number  going  out  of  office  each  year.  We 
should  thus  reduce  the  excessive  number  of  candi- 
dates, which  now  tends  to  the  confusion  of  the 
voter  and  prevents  due  weight  from  being  given 
to   the   qualifications   of   individual   candidates. 


The  total  appropriations  for  the  current  expenses 
of  the  city  for  the  fiscal  year  ending  January  31, 
1896,  amounted  to  $14,013,043.  The  actual  current 
expenditures  of  the  city  to  January  1,  1896,  plus 
the  additional  expenditures  through.  January  31, 
1896,  as  estimated  by  the  City  Auditor,  amount 
to  the  sum  of  $14,326,544,  making  an  estimated 
excess  of  expenditures  over  appropriations  for  the 
year  1895-96  of  $313,501;  this  amount  the  City 
Auditor  estimates  will  be  provided  by  the  surplus 
income  of  the  city  in  excess  of  the  estimates  of 
general  revenue  upon  which  the  annual  appropriation 
order  for  the  current  fiscal  year  was  based.  The 
total  department  estimates  for  current  expenditures 
for  the  fiscal  year  beginning  February  1,  1896,  as 
received  by  the  City  Auditor,  amount  to  the  sum 
of    $15,449,260,   or    an    excess  of    $1,436,217   over 



the  appropriations  for  the  current  fiscal  year,  and 
an  excess  of  $1,122,716  over  the  actual  and 
estimated  current  expenditures  for  this  year.  Among 
these  estimated  increases  over  the  expenditures  of 
the   present   fiscal  year   are  the   following : 











Institutions    .... 


Or  a  total  of          .         .         . 


in  these  six  departments  alone. 

I  have  not  included  in  these  estimates  the  sum  of 
$440,000  requested  by  the  School  Committee  for  the 
purpose  of  providing  proper  sanitary  and  ventilating 
appliances,  fire-escapes,  etc.,  in  existing  school-houses, 
as  I  believe  that  this  sum,  or  such  portion  of  it  as 
may  be  foimd  to  be  necessary,  may  properly  be  pro- 
vided by  loan. 

To  meet  these  demands  for  increased  appropria- 
tions, the  increase  in  the  resources  of  the  city  from 
the  proceeds  of  the  $9  tax,  as  limited  by  law, 
amounts,  according  to  the  figures  of  the  City  Auditor, 
to  only  $232,000.  According  to  the  estimates  of 
the  general  revenue  of  the  city  made  up  by  the  City 


Auditor,  it  seems  probable  that  this  will  not  exceed 
the  general  revenue  for  the  current  fiscal  year,  while 
it  may  fall  below  it.  The  problem  which  will  there- 
fore confront  the  city  government  in  making  the 
appropriations  for  the  fiscal  year  1896-97  will  be  that 
of  reducing  the  above-mentioned  additional  demands 
upon  the  city  treasury  for  $1,122,716,  to  the  simi 
of  about  $232,000. 

It  must  be  borne  in  mind  that  even  then  no  pro- 
vision is  made  for  any  excess  of  expenditures  over 
appropriations,  while  such  excess  will  amount  during 
the  present  fiscal  year,  as  above  stated,  to  $313,501, 
and  past  experience  shows  that  it  is  extremely  diffi- 
cult, if  not  impossible,  to  avoid  some  excess  of 
expenditures  over  appropriations.  In  fact,  there  is 
some  reason  to  believe  that  even  the  above  state- 
ment represents  the  financial  position  of  the  city  in 
too  favorable  a  light.  It  is  obvious  from  this  brief 
and  general  statement  that  there  must  be  rigid  econ- 
omy in  the  current  expenditures  of  the  city,  and 
that  the  Mayor  and  the  City  Council,  in  making  up 
the  annual  appropriation  order,  will  have  an  unusu- 
ally difficult  task  before  them. 

While  I  shall  not  imdertake  at  the  present  time 
to  anticipate  the  specific  recommendations  with  regard 
to  appropriations  for  the  coming  fiscal  year  which  I 
shall  later  transmit  to  the  City  Council,  I  think  it 
proper  at  the  present  time  to   call  your  attention  to 


one  question  in  connection  with  the  largest  increase 
requested  by  any  department,  namely,  that  for  the 
Board  of  Police,  which  it  seems  to  me  should  re- 
ceive the  early  and  earnest  consideration  of  the  City 

It  will  be  noticed  that  the  increased  appropriation 
requested  for  this  department,  amounting  to  $261,196, 
considerably  more  than  exhausts  the  total  estimated 
increase  in  the  net  income  of  the  city  avaOable  for 
current  expenditures  for  the  coming  fiscal  year,  and 
represents  an  increase  of  18  per  cent,  over  the 
appropriations  for  this  department  for  the  current 
fiscal  year.  While  it  is  true  that  a  comparatively 
small  part  of  this  increase  is  attributable  to  the 
transfer  of  the  park  police  to  this  department,  it 
represents,  in  my  opinion,  an  unwarrantable  addition 
to  the  expenses  of  a  single  department  in  one  year, 
when  considered  from  the  standpoint  of  the  general 
financial  position  of  the  city. 

In  dealing  with  the  estimate  of  the  Police  Depart- 
ment, the  City  Coimcil  may  find  itself  seriously  em- 
barrassed by  the  provision  of  chapter  323  of  the  Acts 
of  1895,  which  gives  this  board  the  unique  power  of 
issuing  its  requisitions  upon  the  city  treasury,  with- 
out reference  to  the  appropriations  made  by  the  City 
Council.  While  I  desire  to  avoid  raising  an  issue  at 
the  present  time,  over  the  question  of  the  justice  or 
advisability   of   the   system    of   State  control    of  the 


Police  Department  which  has  been  established  for  this 
city,  but  on  the  contrary  am  disposed  to  recognize 
the  existence  of  that  system  as  an  accepted  fact 
which  under  present  conditions  there  is  no  possi- 
bility of  changing,  it  seems  to  me  necessary  that 
the  city  government  of  Boston  should  ask  the  Legis- 
lature to  restrict  in  some  manner  the  above-men- 
tioned authority  of  the  Board  of  Police,  and  at  least 
to  limit  to  some  reasonable  percentage,  corresponding 
with  the  growth  of  the  financial  resources  of  the 
city,  the  right  of  this  board  to  increase  from  year 
to  year  its  requisitions  upon  the  city  treasury. 

While  I  shall  try  to  come  to  some  understanding 
with  this  board  in  regard  to  the  increase  requested 
by  them,  and  to  induce  them  to  recognize  the  fact 
that  the  state  of  the  finances  of  the  city  prohibits 
such  a  large  increase  in  any  one  department,  it 
must  nevertheless  be  recognized  that,  by  adhering 
to  its  estimate,  this  board  has  the  power  under 
the  present  law  to  cause  great  embarrassment  to 
the  city  treasury  during  the  coming  year,  and  to 
render  impossible  urgently  demanded  increases  of 
expenditure  in  other  departments  of  the  city  gov- 

The  existence  of  authority  of  this  character  is  en- 
tirely inconsistent  with  the  idea  of  placing  upon  the 
Mayor,  as  intended  by  the  city  charter,  the  entire 
responsibility  for  regulating   the   general   finances   of 


the  city,  and  keeping  its  expenditures  within  the 
limit  prescribed  by  the  State  laws,  without  injurious 
curtailment  of  the  work  of  any  department.  I 
recommend  that  the  City  Council  petition  the  Legis- 
lature for  such  a  reasonable  amendment  of  the 
above-mentioned  provision  of  law  as,  while  not  in- 
consistent with  the  general  purposes  of  the  act 
establishing  the  Board  of  Police,  will  serve  to 
afford  proper  and  necessary  protection  to  the  city 

In  this  connection  I  think  it  proper  to  call  at- 
tention to  the  fact  that  $140,000  of  the  estimated 
increase  in  the  Lamp  Department,  and  $100,000  of 
the  estimated  increase  in  the  Elections  Department, 
are  called  for  in  compliance  with  laws  passed  by 
the  last  Legislature,  requiring  respectively  the  insu- 
lation of  poles  upon  which  electric-light  wires  are 
carried,  and  a  new  registration  of  the  voters  of  the 
city.  It  seems  to  me  somewhat  of  a  hardship  that 
the  city  government  should  be  embarrassed  in  its 
efforts  to  live  within  the  tax  limit  by  legislation,  of 
at  least  doubtful  necessity,  which  places  upon  it 
such  a  considerable  additional  burden  without  pro- 
viding any  additional  resources  out  of  which  it  may 
be  met. 

According  to  the  statement  of  the  Sinking-Funds 
Commissioners,  the  estimated  amoimt  which  the  city 
will  be  able  to  borrow  during  the   present  municipal 


year  within  the  debt  limit  is  $1,968,245.  This  sum 
is  in  addition  to  the  sxun  of  1 500,000,  which  the 
School  Committee  was  authorized,  by  chapter  408  of 
the  Acts  of  1895,  to  borrow  during  the  present  year 
within  the  debt  limit,  which  is  classed  in  the  City 
Auditor's  statement  as  a  loan  authorized  but  not 
negotiated.  This  sum  should,  in  my  opinion,  be 
ample  to  provide  for  all  the  additional  loans,  not 
already  authorized  by  law,  which  it  is  necessary  or 
desirable  that  the  city  should  incur  during  the 
coming  year,  unless  possibly  for  some  new  under- 
taking which  is  expected  to  be  self-supporting,  or 
for  the  purpose  of  completing  some  work  to  which 
the  city  is  already  committed  and  which  has  been 
insufficiently  provided  for  by  loans  outside  the  debt 


One  of  the  most  important  duties  of  the  city  ad- 
ministration is  to  secure  the  proper  management  of 
the  numerous  and  important  public  institutions 
under  its  charge.  Such  management  should  be  pro- 
gressive, humane,  and  scientific,  and,  at  the  same 
time,  as  economical  as  possible,  in  view  of  the 
heavy  financial  burden  which  the  support  of  these 
institutions  imposes  on  the  community.  Fortunately 
experience  proves  that  true  economy  is  consistent 
with  scientific  humanity.  It  should  constantly  be 
kept   in  mind  that   the   main  object  of  every  public 


institution,  whether  charitable  or  penal,  should  be 
the  improvement  of  its  inmates,  morally,  mentally, 
and  physically,  in  order  that  as  large  a  proportion 
of  them  as  possible  may  be  returned  to  the  com- 
munity at  large  better  fitted  to  meet  the  conditions 
of  life.  Even  in  penal  institutions  the  idea  that 
reformation  and  not  punishment  is  the  object  should 
be  constantly  borne   in  mind. 

The  public  institutions  of  the  city  naturally  divide 
themselves  into  two  great  classes, — penal  and  char- 
itable. Charitable  institutions  are  further  subdivided 
into  almshouses  and  lunatic  hospitals.  Institutions 
for  children  may  also  be  regarded  as  a  class  by 
themselves.  The  one  most  important  principle  per- 
taining to  the  management  of  public  institutions, 
now  generally  accepted,  is  the  scientific  classification 
of  inmates.  The  ideal  would  be  to  deal  with  each 
individual  inmate,  adapting  the  treatment  to  the 
needs  of  his  particular  case.  While  this  ideal  is  not 
at  present  possible  of  attainment,  it  can  at  least  be 
approached  by  such  classification  as  will  group  to- 
gether, in  sufficiently  small  bodies,  those  who 
require    about    the    same    methods    of    treatment. 

After  giving  considerable  thought  to  the  subject, 
and  getting  the  views  of  many  persons  who  have 
given  close  study  to  the  subject  for  years,  I  believe 
that  this  principle  can  best  be  applied  to  the  public 
institutions    of    the    city  by  separating    the    lunatic 


hospitals  and  the  ahnshooises,  —  and  possibly,  also,  the 
institutions  for  children  not  of  a  reformatory  chaiv 
acter,  —  from  the  penal  and  reformatory  institutions, 
and  placing  the  former  under  two,  or  three,  sepa- 
rate boards  of  unpaid  trustees,  thus  adopting  a 
system  which  has  been  found  to  secure  the  best 
results  in  the  public  institutions  of  the  State.  I 
would  not  advocate,  however,  removing  the  penal 
institutions  from  the  control  of  the  single  Commis- 
sioner of  Public  Institutions.  While  I  do  not  desire 
to  pass  any  judgment  upon  the  administration  of 
the  present  Commissioner  of  Public  Institutions  with- 
out larger  knowledge  of  his  work,  to  depreciate 
any  improvement  which  niay  have  been  effected  in 
these  institutions,  or  to  discourage  any  efforts  to 
secure  additional  improvement  under  the  present 
administrative  machinery,  I  shall  still  deem  it 
my  duty  to  cooperate  in  any  well-considered  plan 
to  secure  legislation  for  effecting  the  above-men- 
tioned separation  of  institutions  into  two  or  more 

The  pressing  necessity  for  the  construction  of  a 
new  building  for  the  House  of  Correction  of  Suffolk 
county  is  generally  admitted,  and  I  shall  join  in 
an  endeavor  to  secure  the  necessary  legislation  for 
this  purpose.  I  am  heartily  in  sympathy  with  the 
idea  that  in  connection  with  the  erection  of  a 
new   building,   the    House    of    Correction    should   be 


given  largely  the  character  of  a  reformatory,  rather 
than  that  of  a  purely  correctional  institution,  and 
any  future  legislation   should  embody  this  view. 


The  subject  of  the  building  operations  of  the  city 
is  one  which  calls  for  immediate  action  by  the 
Mayor.  Under  the  provisions  of  the  act  of  last 
year  revising  the  city  charter,  the  office  of  City 
Architect  was  abolished,  and  now  when  a  new  build- 
ing is  to  be  erected  the  head  of  that  department 
of  the  city  government  for  whose  use  it  is  in- 
tended selects  the  architect,  and  has  charge  of  the 
construction;  the  selection  of  the  architect  and  the 
adoption  of  plans  is,  however,  made  subject  to 
the  approval  of  the  Mayor.  Understanding  that  it 
was  the  intention  of  the  Legislature  to  make  this 
required  approval  not  merely  a  formal  administra- 
tive act,  but  an  effective  check  upon  the  building 
operations  of  the  city,  and  to  place  upon  the  Mayor 
the  final  responsibility  of  seeing  that  municipal 
architecture  and  construction  is  of  a  proper  char- 
acter and  intrusted  to  proper  hands,  I  shall  en- 
deavor to  use  this  power  for  the  accomplishment 
of  these  objects.  A  proper  performance  of  the  duty 
of  approving  plans  requires  the  Mayor  to  have  at 
his  command  expert  professional  advice,  and  it 
seems    to    me    that    this    can    best    be  provided   by 


engaging  the  services  of  some  architect  of  recog- 
nized qualification,  to  be  the  regular  professional 
adviser  of  the  Mayor  in  all  matters  pertaining  to 
building  operations,  and  to  be  paid  out  of  the  con- 
tingent firnd  of  the  Mayor's  office,  or  out  of  the 
appropriations  for  the  various  buildings.  I  shall 
accordinirly  desimate  such  a  consulting;  architect  as 
soon  aa^ible 

After  an  architect  has  been  selected,  and  plans 
have  been  prepared,  the  responsibility  for  the  mak- 
ing of  the  building  contract  and  for  the  actual 
erection  of  the  building  rests,  under  the  act  above 
mentioned  and  other  laws,  upon  the  head  of  the 
department  for  the  use  of  which  the  building  is 
intended ;  and  this  means,  imder  our  charter,  that  the 
final  responsibility  rests  upon  the  Mayor.  The  act 
further  provides  (in  section  22  of  chapter  449  of 
the  Acts  of  1895)  that  "any  building  not  for  the 
use  of  any  department  shall  be  built  by  such  of 
the  heads  of  departments  or  other  officers  appointed 
by  the  Mayor  as  the  Mayor  shall  from  time  to 
time   determine." 

I  am  advised  by  the  Corporation  Counsel  that  the 
School  Committee  is  not  a  "  department "  within 
the  meaning  of  this  provision,  and  that  the  actual 
building  of  new  school-houses,  including  the  making 
of  the  contracts  therefor,  therefore  comes,  not  under 
the   School   Committee,   but    under   such  head  of    a 


department  or  other  officer  appointed  by  the  Mayor 
as  he  may  designate  for  the  purpose.  According 
to  this  construction,  the  specific  provisions  of  chapter 
408  of  the  *Acts  of  1885,  giving  the  School  Commit- 
tee full  charge  of  the  building  operations  relating  to 
schools,  are  modified  by  the  provision  of  the  subse- 
quent act  revising  the  city  charter  above  referred 
to.  I  shall  deem  it  my  duty  to  exercise  this  power, 
and  to  designate  a  suitable  officer  to  make  future 
contracts  for  school  buildings,  as  well  as  to  see 
that  the  contracts  already  made  for  the  school 
buildings  now  being  erected  are  properly  carried  out. 


The    subject    of    proper   sanitary  and    ventilating 

arrangements  in  our  pubUc  schools  is  one  of  great 
interest  to  large  numbers  of  our  citizens  and  of 
pressing  public  importance.  While  it  seems  to  me 
unlikely  that  such  a  large  sum  as  $440,000,  re- 
quested by  the  School  Committee  for  the  purpose,  is 
required  at  the  present  time  to  make  proper  pro- 
visions of  this  character  in  our  present  school  build- 
ings, and  to  conform  to  the  requirements  of  State 
legislation,  I  believe  that  whatever  expenditure  may 
be  found  necessary  for  this  purpose  should  be 
promptly  provided  for  by  means  of  a  loan,  — a  part 
of  which,  it  seems  to  me,  may  well  be  taken  out 
of   the    $500,000  allowed   to  the  School  Committee, 


within  the  debt  limit,  for  the  erection  of  new  school- 
houses  during  the  present  year,  by  securing  such  an 
amendment  of  chapter  408  of  the  Acts  of  1895 
as  may  be  necessary  for  that  purpose. 

Whatever   may  be  the  necessity  for  the   erection 
of  new  school-houses,  I  believe  that  the  proper   sani- 
tary and   ventilatiQg    arrangements    in  school-houses, 
now  attended  by  such  large  numbers  of  pupUs,   is  a 
matter  of  yet  greater   necessity,   and   should  be  first 
provided  for.      As  this   matter   may   involve   such  a 
large  expense,  it  seems  to  me  that  the  money  therefor 
should  not  be  appropriated  merely  upon  the   request 
of    the   School   Committee,   but  that  an  independent 
enquiry    should    be   made  by   the   city    government, 
through    persons    having    technical    knowledge     and 
professional    experience.       I,    therefore,    propose     to 
cause  an  immediate  and  thorough  examination  to  be 
made  by  experts  into  the  present  condition  of  the 
school-houses,    and   a  report    to   be   made   by  them 
thereon,  and  upon  the  proper  methods  of  ventilation 
and    sanitation,    with    the    probable    cost     of    their 
adoption.      Such    an    investigation    seems   to    be    a 
necessity   in    order   to    enable    those   responsible  for 
the  general  finances  of  the   city  to    act   intelligently 
upon  the  matter.      When   such   a  report   has   been 
made,  I  shall,   as  before   stated,   cooperate  in  every 
way  in  my  power  with  the  School  Committee  in  an 
endeavor  to  secure   the    speedy  appropriation   of  the 


necessary  money,  and  its  application  in  a  manner 
which  will  prove  effectual  in  supplying  the  present 


The  work  of  the  Boston  Transit  Commission  is 
progressing  satisfactorily  and  as  rapidly  as  practi- 
cable. Whatever  differences  of  opinion  may  exist 
among  our  citizens  as  to  the  superiority  of  the 
subway  plan  over  others  that  have  been  proposed  at 
various  times,  as  a  means  of  relieving  the  congestion 
of  travel  in  the  down-town  district  of  the  city,  or 
as  to  the  justification  for  the  large  expenditure 
which  the  subway  calls  for,  I  believe  that  under 
the  direction  of  the  present  members  of  the  Transit 
Commission  this  work  is  being  planned  with  great 
care  and  intelligence,  and  that  there  is  every  reason 
to  expect  that  whatever  advantages  it  is  possible  to 
secure  under  this  plan  will  be  fully  attained.  It  is 
gratifying  to  learn  that  the  commission  expects  to 
have  a  portion  of  the  subway  now  under  construc- 
tion in  use  as  far  as  Park  street  by  next  fall. 

There  is  every  reason  to  believe  that  it  will  be 
possible  for  the  Transit  Commission,  under  the 
authority  granted  to  it,  to  make  such  a  contract  for 
the  use  of  the  subway  as  will  prevent  the  interest 
and  sinking-fund  requirements  of  the  loans  incurred 
for  its  construction  from  being  any  burden  upon  the 
general  finances  of  the  city. 


I  trust  that  this  question  will  be  treated  by 
the  commission  in  a  comprehensive  manner^  with 
a  recognition  of  the  fact  that  a  contract  with 
the  West  End  Street  Railway  Company,  giving 
it  a  fixed  right  to  the  use  of  the  subway  for 
a  term  of  years,  has  an  important  practical  bear- 
ing upon  its  rights  in  the  streets.  I  am  in 
hearty  sympathy  with  the  recommendation  of  the 
Governor  in  his  recent  inaugural,  that  cities  and 
towns  should  be  given  authority  to  make  con- 
tracts with  street  railway  companies  for  the  use 
of  their  streets;  and  I  believe  that  the  contract 
between  the  Transit  Commission  and  this  company 
for  the  use  of  the  subway  should  either  be  of 
such  a  comprehensive  nature  that  it  will  be 
acceptable  to  the  city  government,  as  establishing 
the  basis  of  general  contract  relations  between 
the  city  and  this  company,  or  else  should  be 
entered  into  contemporaneously  with,  and  as  a 
part  of,  a  comprehensive  contract  between  the 
city  and  this  company,  covering  all  of  its  loca- 
tions  and  other  rights. 

The  work  of  the  Transit  Commission  in  entering 
upon  the  construction  of  a  new  bridge  to  Charles- 
town  has  been  unavoidably  delayed  through  a 
variety  of  causes.  It  was  found  necessary  to 
abandon  the  idea  of  a  drawless  bridge.  After  the 
passage    of    the    law    authorizing    the  widening   of 


Charlestown  street,  near  the  close  of  the  last 
legislative  session,  and  in  harmony  with  such  law, 
the  Transit  Commission  fixed  the  location  for  the 
new  bridge,  on  the  30th  of  July  last,  just  westerly 
of  the  present  Charles-river  bridge,  so  that  Charles- 
town  street,  when  widened,  will  be  a  direct 
approach  to  the  bridge.  After  the  preparation  of 
the  necessary  plans,  the  license  of  the  Harbor  and 
W  ConuliLr,  U>  build  the  bridge  ™  ^^ 
at  the  end  of  the  month  of  November,  and  the 
necessary  approval  of  the  Secretary  of  War  was 
granted  a  month  later.  All  necessary  legal 
authority  having  now  been  obtained,  the  work  of 
constructing  this  important  improvement  is  in  a 
position  to  be  proceeded  with  as   fast    as    possible. 


The  city  has  already  incurred  an  expense  of 
over  $350,000  for  the  purchase  of  land  for  the 
projected  Strandway  from  the  Marine  park,  South 
Boston,  to  Dorchester  bay.  The  delay  on  the 
part  of  the  city  in  beginning  the  construction  of 
this  important  improvement  has  afforded,  in  my 
opinion,  reasonable  ground  for  disappointment  and 
dissatisfaction  on  the  part  of  the  people  of  South 
Boston  generally,  and  particularly  of  those  who 
own  land  adjacent  to  the  proposed  Strandway, 
which    cannot    be     developed    or    properly    utilized 


while  the  shore  land  taken  by  the  Park  Commis- 
sion is  allowed  to  remain  in  its  original  condi- 

The  last  city  government  provided  a  loan  of 
$100,000  inside  the  debt  limit  for  beginning  work 
upon  the  Strandway.  The  Park  Commissioners 
propose  to  begin  construction  at  a  point  adjacent 
to  the  promenade  pier  and  to  continue  it  along 
the  shore  in  a  westerly  direction  from  this  point. 
I  am  informed  by  the  Park  Commissioners  that 
an  additional  sum  of  $200,000  will  complete  the 
Strandway  (except  the  final  surface  finishing,  which 
cannot  be  done  until  the  land  has  been  allowed 
to  settle  for  at  least  a  year)  as  far  as  I  street, 
thus  affording  nearly  a  mile  of  completed  beach 
front.  The  Commissioners  state  that  this  sum  is 
all  which  they  can  profitably  expend  during  the 
coming  year,  and  as  this  will  go  so  far  toward 
completing  the  Strandway  as  a  local  improvement, 
leaving  only  the  important  matter  of  connecting 
it  with  Dorchester  to  be  subsequently  provided 
for,  I  believe  that  the  provision  of  this  sum  out 
of  loans  within  the  debt  limit  is  all  that  is 
necessary  for  the  present  year,  and  I  shall  recom- 
mend such  an  appropriation. 

Anticipating  the  completion  of  this  connection, 
it  seems  to  me  that  some  legislation  should  be 
secured   which  will  provide  for    the    filling    of    the 


flats  which  will  be  left  inside  of  the  line  of 
the  projected  parkway  from  the  point  where  it 
leaves  the  South  Boston  shore  line  to  the  point  where 
it  joins  the  Dorchester  shore.  The  expense  of  con- 
structing  this  parkway  would  be  greatly  diminished 
if  the  filling  could  be  done  in  conjimction  with  the 
owners  of  these  flats. 


The  maintaining  of  public  baths,  open  all  the 
year,  seems  to  me  to  be  a  project  for  encouraging 
social  and  sanitary  improvement  by  municipal  action 
which  promises  large  returns  for  a  comparatively 
small  expenditure,  and  I  am  of  opinion  that  the 
experiment  of  establishing  such  a  public  bath  in  a 
suitable  locality  should  be  tried.  I  shall  recom- 
mend such  an  appropriation,  to  be  provided  for 
by  loan. 


The  establishment  of  a  Board  of  Elections,  and 
the  vesting  iu  this  board  of  all  of  the  powers 
and  duties  relating  to  caucuses  and  elections 
formerly  divided  among  the  City  Clerk,  the  Regis- 
trars of  Voters,  the  Superintendent  of  Public 
Buildings,  the  Ballot  Law  Commission,  and  the 
Board  of  Aldermen,  has  resulted  in  greater  sim- 
plicity of  machinery,  and  more  responsible  and 
effective    administration.      It    is   the   opinion   of  the 


present  members  of  the  board  that,  upon  a  fair 
comparison  of  expenses,  the  present  system  will 
also   show   greater   economy. 

In  this  connection  I  desire  to  suggest  that,  as 
the  regulation  of  caucuses  by  law  has  already  been 
carried  so  far  in  this  city,  it  is  worthy  of  serious 
consideration  whether  the  policy  should  not  be 
further  extended  to  its  logical  end:  this  would 
place  party  caucuses,  both  as  to  the  appointment 
and  payment  of  their  officers,  and  as  to  the  laws 
regulating  the  holding  of  caucuses,  upon  the  same 
footing  as  elections.  A  considerable  expense  is  now 
involved  in  the  partial  regulation  of  caucuses  now 
in  operation,  and  there  seems  to  be  much  force  in 
the  argument  that  it  would  be  wise  to  incur  the 
additional  expense  necessary  to  make  the  regulation 
complete   and  effectual. 


The  considerable  changes  which  have  been  effected 
during  the  last  five  years,  by  the  action  both 
of  the  State  Legislature  and  of  the  City  Council,  in 
the  organization,  and  in  the  powers  and  duties,  of 
the  executive  branch  of  the  city  government,  seem 
to  me  to  make  the  duty  of  securing  the  most 
effective  possible  administration  of  more  present 
importance  than  that  of  securing  further  organic 
changes.     Progress   toward  the   best  possible  munic- 


ipal  government  cannot  always  be  best  promoted 
by  further  changes  in  the  scheme  of  administra. 
tion.  There  is  a  limit  to  organic  improvements. 
The  city  charter  of  Boston  in  its  present  form 
probably  corresponds  more  nearly  to  the  adminis- 
trative principles  generally  accepted  by  those  who 
have  given  the  most  careful  thought  and  study  to 
the  problem  of  American  municipal  government  than 
the  charter  of  any  other  large  city  in  the  country. 
While  there  must  always  be  a  broad  field  for 
minor  improvements  in  municipal  machinery,  the 
main  principles  which  have  been  worked  out  and 
practically  applied  to  the  executive  government  of 
this  city  during  the  past  ten  years  are  generally 
recognized  as  sound  and  correct.  The  most  un- 
portant  work  of  the  unmediate  future  is,  therefore, 
that  of  securing  efficient,  honest,  and  economical 
administration  under  the  existing  provisions  of  the 
laws  and  ordinances,  which  at  least  make  the 
attainment  of  this  object  more  possible  than  it  has 
been  in  the  past.  In  the  performance  of  this 
important  duty,  it  will  be  my  purpose  not  only  to 
maintain,  but  to  advance,  the  existing  standard  of 
capacity  and  efficiency  among  the  officials  and 
employes  of  the  executive  branch  of  the  govern- 
ment. The  citizens  of  Boston  are  entitled  to  a 
full  and  adequate  return  for  the  salaries  and  wages 
—  more  liberal,  in  many  instances,  than  those  given 


by  private  employers  for  similar  services  —  paid  to 
their  mmiicipal  servants,  and  I  shall  try  to  see 
that  such  return  is  received. 

While  experience  does  not  yet  warrant  the  belief 
that  it  is  possible  in  American  municipal  govern- 
ments to  obtain  as  large  a  return  for  money 
expended  as  is  secured  by  private  individuals  and 
corporations,  it  will  nevertheless  be  my  constant 
endeavor  to  make  such  return  as  large  as  possible. 
So  far  as  the  purchase  of  supplies  is  concerned, 
the  city  ought  to  realize  as  favorable  results  as 
private  corporations  making  purchases  of  the  same 
magnitude  and  character. 

In  making  appointments  to  office,  I  shall  make 
every  effort  to  secure  higher  qualifications  for  the 
service  of  the  city. 

Oentlemen  of  the  City  CowncU:  I  trust  that  our 
official  relations  during  the  coming  year  may  be 
pleasant  and  satisfactory.  In  the  discharge  of  the 
important  duties  intrusted  to  us  by  our  fellow-citi- 
zens, may  we  be  strengthened  and  supported  by  a 
constant  sense  of  the  Divine  guidance. 













JANUARY  4,    1897. 


^A     (C<0I^a)IITAi3D.     ^> 
^/.       1©3©.       ^^ 


KocKWEij.  AND  Churchill,  City  Printers. 



OCI    13  183L 

'J     y 


'-^  . 


In  Board  of   Aldermen, 

elanuary  4,   1897. 

Ordered^   That   His   Honor  the  Mayor  be  requested  to 
furnish   for   publication   a   copy   of  the    address    delivered 
by  him  this  day  before  the  City  Council. 
Passed.     Sent  down   for  concurrence. 

Perue    a.    Dyar, 


In   Common   Council,   January   7,    1897. 


A   true   copy. 

Attest : 

Joseph   A.    Conry, 


J.    M.    Galvin, 

City  Clerk. 


Financial  Statements 


Public  Baths 




Southern  Union  Station 


South  Boston  Freight  Terminals 
The  Strandway 


Grade  Crossings       .        .         .        . 


Merchants'  Municipal  Committee 




Reorganization  of  City  Council  . 


A  Statistical  Department 


Election  Department       .     '*    . 




New  Register  of  Voters      )   . 


Regulation  of  Caucuses      '    . 



Public  Institutions          .    /    . 


City  Hospital   .... 




Printing  Department 


Electrical  Construction 


Wire  Department     . 


Building  'Department 



Building  Operations 


Park  Department 


Street  Department  . 


Paving  Division 


Sewer  Division          .         .         . 


Sanitary  Division    .         .         . 


Street-Cleaning  Division    •    . 


Bridge  Division         .         .    •     • 


Ferries        .         .         .         .    '    . 


4                                                 CONvTENTS. 



Street  Watering 84 

Franchises  in  Streets 



Street  Changes 



Street  Laying-Out  Department 



Charlestown  Bridge 




Cambridge  Bridges  . 



Water  Department 




Fire  Department 


•               ■ 


Harbor  Improvement 



Harbor  Defences 



Financial  Policies   . 



West  End  Street  Railway 


.      105 

Mount  Hope  Cemetery    . 



Public  Lavatories    . 



A  Municipal  Laboratory 



Unsanitary  Tenements    . 

»                             1 



Randidge  Bequest    .... 




Franklin  Fund          .... 




New  Statues 




Copley  Square  




Rifle  Range 




Free  Public  Concerts 




Islands  in  Harbor  .... 




Care  of  Trees 




Publication  of  Advertisements     . 




Faneuil  Hall 








State  Lecjislatiox    .... 




Executive  Organization 






Oentlemen  of  the    City    Council: 

Notwithstanding  the  fact  that,  for  the  first  time 
in  the  history  of  Boston,  there  is  no  inauguration 
of  a  mayor  at  the  beginning  of  the  municipal 
year,  the  usual  executive  address  is  doubtless 
expected.  I  can  undertake  to  cover  but  a  small 
portion  of  the  extensive  field  of  our  municipal 
work,  and  that  only  in  the  most  general  man- 
ner. It  has,  however,  seemed  to  me  proper  that, 
in  the  middle  of  a  two-year  term  of  office,  I 
should  refer,  at  somewhat  greater  length  than  has 
iDeen  customary,  to  some  of  the  executive  and 
legislative  work  of  the  last  year,  indicate  some 
of  the  progress  made,  and  present  for  your  con- 
sideration various  ideas  and  suggestions  looking 
to   future   action. 


The   debt   statement   is   as   follows: 

Gross   debt  December  31,  1895      .  $64,513,380  77 
Gross   debt   December  31,  1896      .     69,480,840  48 

Increase  during  the   year     .  .       .    $4,967,459  71 


Net  debt  December  31,  1895         .  $39,465,039  55 
Net  debt  December  31,  189G        .     43,727,721  47 

Increase   during  the  year    .         .     $4,262,681  92 

Increase  in  sinking  funds  and  other 

redemption  funds  during  the  year,        $704,777  79 

Total  amount  of  debt  issued  during 

1896,   both  inside    and  outside  of 

debt  limit      .....     $7,321,000  00 
Funded  debt   paid  during  the  year,       2,353,540  29 

Increase  in  gross  debt,  as  above  .     $4,967,459  71 

Loans  inside  the  debt  limit  issued 

during   the  year   1896         .         .         $3,096,000 
Of    this    amount    loans 

authorized     in      1896 

represented         .         .      $753,500 
Loans  authorized   prior 

to  1896      .         .         .     1,842,500 
Loans    inside    of     debt 

limit      for     constiuc- 

tion   of    new    school- 
houses,    under     chap. 

408  of  1895       .        .       500,000 



The   loans   outside   the   debt   limit  issued  during 
1896    were   the   following: 

Subway  and  other  rapid-transit  pur- 
poses         $2,250,000 

Blue    Hill,     Columbus,     Huntington, 

and   Commonwealth   avenues  .  1,000,000 

Layijig  out  and  construction  of  asses- 
sable  streets   .....  850,000 

Improvement  of  Stony  brook     .         .  100,000 

Improved  ferry  facilities     .         .         .  25,000 

Total $4,225,000 

The  borrowing  capacity  of  the  city  within  the 
debt  limit  for  the  municipal  year  1896  was 
$2,053,311.  The  loans  authorized  by  the  city 
council  during  the  year  exhausted  the  whole 
of  this  borrowing  capacity  except  the  sum  of 

The  loans  authorized  inside  the  debt  limit  were 
foi'   the   following   purposes: 

Street  improvements,  by  wards,  $25,000 
for  each  ward,  except  $50,000  for 
ward  23 $650,000 

Ventilation  and  sanitation  improve- 
ments  in   school-houses      .         .         .  300,000 

Sewers 179,500 

^ew   general    registration  of  voters     .  100,000 


North   End    playground 

Public   bath-house 

Commonwealth     avenue,     to      continue 
construction         .... 

City   hospital,   new   buildings   and  fur- 
nishing       ..... 

City   hospital,   electric-light  plant 

Widening  and  construction  of  streets 

Institutions   department,  new   construc- 
tion  work  ..... 

Improvements    in    city    hall     and    old 
court   house         .... 

Massachusetts  Historical  Society  build- 
ing, on  account  of  purchase 

New  electrical   consti-uction  work 

Tremont     street,     repaving     south     of 
Lenox  street       .... 

West  Roxbury  playground    . 

New  fire-boat         .... 

Fire   department,  salt-water  pipe  service, 

Improvements  at  Mt.   Hope  cemetery 

Balance,     for    miscellaneous    purposes 
chiefly    local    street    improvements 










The  total  loans  outside  of  the  debt  limit  author- 
ized by  the  city  council  during  1896  were  the 
following : 


Laying    out    and    construction    of 

assessable    streets,   un^er    chap. 

323  of  1891        ....  $500,000 

Improved     ferry    facilities,     under 

chap.   435   of  1895      .         .         .  500,000 

Improvements     in      Stony     brook, 

under  chap.   530   of  1896  .         .  500,000 

Construction       work      on      public 

pai'ks,      under     chap.     453     of 

3896      .        .        .        .        .        .         1,000,000 

Total 12,500,000 

Total  loans,  inside  and  outside  of 
debt  limit,  both  authorized  and 
issued  during  1896,  exclusive  of 
loans  for  subway  and  assessable 
avenues   and   streets        .         .         .  $878,500 

The  valuation  of  property  upon  which  the  debt 
and  tax  limits  are  based  has  increased  $25,259,492 
since  last  year.  The  borrowing  capacity  of  the 
city  for  the  coming  year,  however,  will  only  be 
•about  $1,800,000,  or  about  $250,000  less  than  last 

Amount   assessed  under  $9  tax  limit 

for  financial  year  1895-6        .         .         $8,123,212 
Estimated   general   revenue        .         .  2,764,290 


Debt  requirements     ....         $3,231,959 
County   expenses    exempt    from    tax 

limit 425,000 

Total  sum  appropriated  for  the  cur- 
rent expenses   of  the  year     .         .       $14,544,461 

making  the  tax  rate  on  the  thou- 
sand           |12  90 

Amount  which  can  be  raised  within 
the  $9  tax  limit  for  the  financial 
year   1896-7 $8,350,547 

Increase   over   financial  year  1895-6,  $227,335 

Of  the  loans  of  $7,321,000  issued  during  the 
year,  three  and  a  half  and  four  per  ceiit.  bonds 
amounting  to  $5,750,000  were  sold  upon  the  open 
market;  $1,507,300  four  per  cent,  bonds  were 
taken  by  the  commissioners  of  sinking  funds,  and 
$63,700  four  per  cent,  bonds  were  sold  to 
various  city  trust  funds.  The  number  of  diflerent 
loans  placed  upon  the  market  during  the  year 
was  ten.  The  duty  of  placing  the  loans,  vested 
in  the  city  treasurer,  subject  to  the  approval 
of  the  mayor,  is  a  most  delicate  and  impor- 
tant one,  calling  for  constant  watchfulness  and 
sound  financial  judgment.  We  may  congratulate 
ourselves    upon    the    fact    that     the   credit   of   the 


city  remained  so  good  during  tlie  disturbed 
financial  conditions  of  the  last  six  months  that 
the  treasurer  continued  to  market  bonds,  at  only 
a  slight  decrease  from  former  prices,  during  the 
period  when  other  large  cities  abandoned  the 
attempt  to   dispose   of  their   securities. 

I  am  happy  to  be  able  to  state  that  it  has  recently 
been  found  possible  to  reduce  the  interest  rate  upon 
the  twenty-year  bonds  of  the  city  from  four  to  three 
and  a  half  per  cent.  A  three  and  a  half  per  cent, 
loan  for  the  sum  of  $1,500,000  was  sold  at  101 1  in 
the  latter  part  of  November.  The  last  preceding 
three  and  a  half  per  cent,  loan  —  outside  of  the 
special  rapid-transit  loans  foi*  forty  years  —  was 
issued  early  in  1890.  The  credit  of  the  city  ot 
Boston  stands  deservedly  high,  and  there  is  no 
reason,  under  the  financial  policy  now  pursued,^ 
why   it   should  not  remain   so. 

During  the  current  financial  year  the  money 
paid  into  the  city  treasury  for  licenses  for  the 
sale  of  intoxicating  liquors,  after  deducting  the 
one-quarter  share  payable  to  the  commonwealth, 
has  amounted  to  the  sum  of  $1,082,991.75.  The 
expenses  of  the  police  department  for  the  finan- 
cial year  will  amount  to  about  $1,676,000 ;  so 
that  the  receipts  from  licenses  have  met  nearly 
two-thirds   of  the   total   cost   of  this   department. 



The  contract  for  the  bath-house  on  Dover 
street,  the  plans  of  which  have  recently  been 
made  public,  will  be  awarded  very  shortly, 
and  the  work  should  be  completed  within  the 
next  six  months.  Partly  in  recognition  of  the 
interest  which  the  representatives  of  the  wage- 
earners  of  the  city  have  manifested  in  the  project, 
and  of  the  support  which  they  have  given  it,  a 
clause  has  been  inserted  in  this  contract  requir- 
ing that  preference  in  employment  upon  the  work 
shall  be  given  to  the  membei-s  of  trades  unions. 
I  informed  the  city  council  of  1896  that  I  should 
advocate  the  establishment  of  several  other  local 
bath-houses  of  a  similar  character  during  the 
present  year,  and  I  now  desire  to  formally  recom- 
mend a  loan  of  $200,000  toward  erecting  baths 
in  Charlestown,  East  Boston,  the  !N^orth  End, 
South  Boston,  and  Roxbury.  While  this  sum 
may  not  be  sufficient  to  provide  proper  baths 
for  all  five  of  these  districts,  it  would  go  very 
far  toward  doing  so,  and  they  should  all  be 
included   in   any   general  plan. 

During  the  past  year  the  subject  has  been  so 
thoroughly  studied  from  every  standpoint  that 
action  upon  a  comprehensive  scale  can  now  be 
safely  taken,  and  if  the  city  council  acts  promptly, 


Boston  can,  within  the  coming  year,  take  a  place  in 
advance  of  any  other  American  city  in  respect  to  ** 
public  bathing  facilities.  I  desire  to  express  my 
acknowledgments  of  the  careful  and  faithful  work 
of  the  members  of  the  advisory  committee  upon 
this  subject,  appointed  by  me  early  in  the  year. 

While  the  needs  of  the  different  sections  of 
the  city  in  respect  to  shower-baths  should  be 
first  met,  I  believe  that  one  or  more  large  swim- 
ming-baths, such  as  the  town  of  Brookline  has 
recently  opened,  should  later  be  added.  Some 
free  instruction  in  swimming,  particularly  for  the 
benefit  of  the  scholars  in  our  public  schools,  may 
well  be  furnished  by  the  city.  The  public  bath- 
ing-beach at  the  Marine  park,  South  Boston, 
has  been  so  largely  used  during  the  past  year  that 
the  need  of  a  greater  number  of  bath-houses  is 
already  felt,  and  it  is  hoped  that  these  can 
be  provided  before  the  opening  of  another  season. 
I  believe  that  the  smallest  possible  charges  should 
be  made  for  the  use  of  the  facilities  required^  for 
bathing  on  the  open  beach,  in  order  that  as 
large  a  number  of  the  people  as  possible  may 
enjoy  this  great  privilege  afforded  by  our  water 

In  many  of  the  cities  of  continental  Europe 
baths  have  for  some  time  been  introduced  in 
school-houses   for    the    use   of   the    scholars,    with 


such  excellent  results  that  they  have  become  an 
established  feature.  The  teaching  of  habits  of 
personal  cleanliness,  which  is  thus  made  possible, 
should  be  no  unimportant  part  of  public  instruc- 
tion. It  should  be  a  source  of  satisfaction  that 
the  school  committee  has  decided  to  try  this 
experiment    in   a   new   school-house. 


I  know  of  no  direction  in  which  the  expenditure 
of  a  few  hundred  thousand  dollars  will  do  more  for 
this  community,  through  the  healthful  development 
of  its  children  and  young  people,  than  by  the 
judicious  provision  of  properly  located  and  equipped 
playgrounds.  «So  much  public  attention  has  been 
given  in  this  and  other  cities  to  the  advantages  of 
extensive  park  areas,  that  the  equally  great  need  of 
comparatively  small  open  spaces,  particularly  in 
thickly  settled  districts,  for  use  as  playgrounds,  has 
been  largely  overlooked.  The  cify  and  metropolitan 
park  systems  have  provided  Boston  and  its  suburbs 
with  one  of  the  finest  and  most  varied  systems  of 
rural  and  urban  parks  to  be  found  anywhere  in  the 
world.  But  these  lai'ge  park  areas  are  not  de- 
signed, or  only  to  a  very  slight  extent,  to  afford 
opportunities  for  open-air  games  or  athletic  sports 
or  contests.  If  one-twentieth  of  the  sum  which 
Boston  has  spent  upon  her  magnificent  park  system 


could  be  devoted  to  the  acquisition  in  proper 
localities,  throughout  the  city,  of  numerous  areas  to 
serve  as  playgrounds,  the  investment  would,  in  my 
opinion,  bring  in  a  still  larger  percentage  of  return, 
in  the  shape  of  healthful  physical  development  and 
social  well-being.  I  believe  thnt  every  ward  of 
the  city  shoul^,  as  nearly  as  possible,  be  provided 
with  some  place  where  children  can  play,  and 
where  out-door  sports  and  contests  can,  to  some 
extent  at  least,  be  carried  on.  The  city  of  Paris 
recognizes  so  fully  the  public  importance  of 
healthful  out-door  recreation  that  directors  of 
sports  are  employed,  to  assist  in  organizing 
them.  Boston  may  well  adopt  the  same  en- 
lightened  policy  and  become  the  first  city  in 
America  in  respect  to  public  exercise  and 

A  fair  beginning  in  this  direction  has  already 
been  made  during  the  past  year.  .The  lot  of 
laud  owned  by  the  city  on  M  street,  '  South 
Boston,  containing  about  five  acres,  has  been  taken 
out  of  the  hands  of  the  street  commissioners,  and 
the  work  of  levelling  it  off  to  a  proper  grade, 
for  which  the  sum  of  five  thousand  dollars  was 
secured,  is  already  in  progress.  The  question  of 
how  best  to  equip  and  utilize  this  ground  has  been 
considered  at  a  public  hearing  in  South  Boston, 
plans  are   under  way,    and   the    matter  is  in    shape 


for  intelligent  action.  The  park  eomniissionei'S 
have  recently  taken  a  tract  of  about  eighteen 
acres  of  marsh  at  Neponset,  for  which  the  sum 
of  $15,000  was  appropriated  last  year,  also  a  desir- 
able area  of  about  eleven  acres,  chiefly  low 
meadow  land,  tnown  as  Billings'  field,  in  West 
Roxbury,  for  which  the  sum  of  $20,000  was 
appropriated  in  the  last  general  loan  order. 
While  these  two  tracts  are  not  at  the  present  time 
in  suitable  condition  for  immediate  use  for  play- 
ground purposes,  they  will  be  secured  at  such 
a  moderate  figure  that  even  after  the  expense  of 
filling  has  been  met  they  will  not  be  expensive, 
and  if  such  filling  is  gradually  done  with  city 
ashes  its  cost  will  be  very  slight.  It  is  very 
desirable  that  such  playgrounds  should,  if  possible, 
be  laid  out  so  as  ultimately  to  be  bounded  by  a 
street  on  every  side,  and  this  has  been  secured 
in  these  two  cases. 

The  acquisition  of  spaces  of  this  character  in 
our  outlying  districts  is  to  some  extent  a  wise 
and  economical  anticipation  of  the  certain  wants 
of  the  not  far  distant  future  ;  but  there  are 
other  localities  where  the  need  of  playground  ac- 
commodations is  already  urgently  felt.  In  built-up 
districts  it  is  of  course  impossible  to  provide  open 
areas  of  as  great  size,  as  the  cost  of  acquiring 
land  is  considerable;  yet  these  are  the  very  districts 


where  it  is  most  important  to  make  some  provisiou 
of  this  character  as  soon  as  possible.  In  ward 
three,  Charlestown,  for  instance,  the  want  of  some 
open  space  is  keenly  felt,  and  a  petition  repre- 
senting the  inconvenience  and  danger  caused  by 
the  playing  of  children  in  the  public  streets,  and 
asking  for  the  purchase  of  a  playground,  has  been 
extensively    signed  by   taxpayers. 

Ward  sixteen  is  another  district  where  there  is 
great  need  of  a  playground,  especially  for  use  by 
young  men  as  an  athletic  field.  In  this  vicinity 
there  is  fortunately  plenty  of  vacant  low  land  which 
can  be  acquired  and  filled  for  a  reasonable  sum, 
and  this  should  be  done  as  soon  as  possible. 

In  thickly  populated  districts,  small  open  breath- 
ing-spaces for  the  use  of  little  children,  with 
their  mothers,  would  also  be  valuable.  Pro- 
vision has  already  been  made  for  one  open  space 
of  this  character  by  the  appropriation  by  the  last 
city  council  of  the  sum  of  $2,000  for  improving 
a  lot  of  laud  on  Fellows  street,  already  owned 
by  the  city,  containing  about  three-quarters  of 
an  acre.  A  plan  for  this  purpose  has  been 
carefully  prepai-ed,  and  the  work  will  be"  com- 
pleted  eai'ly   in   the    spring. 

Open-air  gymnasia  have  already  been  pro- 
vided by  the  city  at  Charlesbank  and  Wood 
island,   and   the   large   use   made  of   both  of  these 


shows  that  they  meet  a  public  want.  Similar 
t^ymnasia,  for  the  use  of  adults  as  well  as  young 
people,  should  be  located  at  a  number  of  points 
throughout  the  city,  and  more  attention  should 
also  be  i)aid  to  providing  gynmastic  apparatus  for 
school  children.  Last  year  an  appropriation  of 
$15,000  was  made  for  an  open-air  gj^mnasium  at 
Commonwealth  park,  in  ward  thirteen,  South  Bos- 
ton; but  as  the  state  owns  this  land,  and  no  Jissur- 
ance  could  be  obtained  as  to  the  continuance  of  its 
use  by  the  city,  it  was  not  deemed  proper  to  ex- 
pend this  sum,  and  it  is  still  available.  There 
seems  to  be  a  sti'ong  demand  in  this  ward  for  a 
gymnasium  and  playground,  and  the  matter  of  find- 
ing  a  suitable  location  is  now  imder  investigation. 

The  appropriation  of  $100,000  for  a  playground 
at  the  North  End  has  not  yet  been  expended. 
Owing  to  the  high  price  of  land  in  this  locality 
it  is  difficult  to  secure  much  of  an  area  with 
this  sum;  but  the  more  crowded  a  district  is, 
the  greater  is  the  necessity  of  at  least  some  such 
accommodation.  The  city  of  Xew  York  has 
within  the  last  year  completed  a  large  open 
square,  at  an  expense  of  over  a  million  dollars, 
in  the  heart  of  the  thickly  populated  Mulberry 
Bend  district,  and  the  improvement  is  now  recog- 
nized as  having  more  than  justified  even  this  cost. 

Unless  some  more  ccmiprehensive  financial  scheme 


seems  feasible,  I  recommend  a  loan  this  year  of 
at  least  $200,000  to  be  devoted  to  the  acquiring 
and  equipment  of  playgrounds.  I  am  thoroughly 
satisfied  that  it  would  be  far  wiser  for  the  city 
to  expend  the  sum  of  $400,000  during  the  com- 
ing year  for  public  baths  and  playgrounds,  than 
to  devote  that  amount  of  money  to  any  other  pur- 
poses, of  however  pressing  a  character.  The 
adoption  of  progi'essive  and  distinctive  municipal 
policies  of  this  nature  raises  the  reputation  and 
standing  of  the  city,  and  tends  to  bring  its  gov- 
ernment closer  to  the  people,  and  to  promote  a 
civic  spirit  which  will  yield  valuable  rei^ults  in 
many   directions. 

The  subject  of  public  squares  is  somewhat  con- 
nected with  that  of  playgrounds.  At  the  present 
time  we  have  some  seventy  squares  and  public 
grounds,  large  and  small,  with  a  total  area  of  about 
one  hundred  and  forty-three  acres,  in  charge  of  the 
public  grounds  department.  The  question  of  mak- 
ing  these  open  spaces  of  the  greatest  possible 
utility  to  the  public  is  an  interesting  and  important 
one,  and  many  desirable  improvements,  which  would 
add  both  to  the  convenience  of  the  people  and  the 
artistic  appearance  of  the  grounds,  could  be  eifected 
within  a  moderate  cost.  It  would  be  desirable 
to  supply  in  many  of  them  sand-pits  for  small 
children   to   play    in.      These   can   be   put   in    at  a 

20  MAYOR'S     ADDREvSS. 

small   expense,   and    have   been    much    appreciated 
where  they  have  been  furnished. 

I  believe  that  it  would  be  desirable  for  the 
city  to  acqmre  most,  if  not  all,  of  the  smaller 
marsh  areas  within  its  limits.  These  are  of  com- 
paratively small  value  at  present,  while  the  open 
spaces  thus  secured  would  be  of  great  public 
value  in  the  future,  l^heir  acquisition  would  pro- 
tect adjacent  property  from  depreciation,  through 
the  undesirable  uses  to  which  such  land  is 
now  liable  to  be  put,  and  would  afford  dump- 
ing places  for  the  future  use  of  the  sanitary 


In  my  inaugural  address  the  great  desirability 
of  securing  a  union  passenger  station  for  the  use 
of  the  four  railroad  lines  entering  the  city  on  the 
south  side  w^as  urged,  and  it  w^as  suggested  that 
the  city  should  endeavor  to  secure  the  passage 
of  compulsory  legislation,  if  necessary,  to  effect 
this  great  improvement.  A  new  i)lan  for  the 
location  of  such  a  miion  station  was  bi'ought 
forward  eai'ly  in  the  year,  upon  whi(».h  the  repre- 
sentatives of  the  vai'ious  I'ailroads  affected,  and 
of  the  city,  were  able  to  agree  ;  and  by  chaj)ter 
516  of  the  acts  of  1896,  approved  June  9, 
provision   was   made   for   the   construction    and  use 


of  such  a  station,  and  for  cei-tain  changes  in  the 
public  streets  necessarily  incident  thereto.  The 
beginning  of  the  work  of  construction  to  be  done 
under  this  act  has  been  unavoidably  delayed,  both 
on  the  part  of  the  Terminal  Company  and  of  the 
city.  The  extraordinary  financial  conditions  of  the 
summer  and  autumn  prevented  the  company  from 
placing  its  bonds  as  rapidly  as  desired,  at  a  satis- 
factory price.  This  diificulty  has  only  recently 
been  removed,  but  the  Terminal  Company  has  now 
acquired  by  purchase  a  large  part  of  the  neces- 
sary land,  and  has  sold  $6,000,000  of  its 
bonds  and  secured  authority  to  issue  $2,000,- 
000  more  ;  it  is  expected  that  its  whole  invest- 
ment will  amount  to  between  eight  and  ten 
millions.     On   the  part  of  the  city,  application  was 

made  to  the  war  department,  as  promptly   as   pos- 


sible  after  the  passage  of  the  act,  for  the  necessary 
permission  to  construct  the  sea-wall  on  Fort 
Point  channel.  This  was  duly  received,  and  the 
approval  of  the  plans  by  the  harbor  and  land 
commissioners  is    expected   shortly. 

This  delay  has  not  postponed  the  final  comple- 
tion of  the  undertaking,  as  the  work  to  be  done  by 
the  Tei-minal  Company  has  not  been  held  back.  A 
large  pai't  of  the  land  necessary  for  the  widening  of 
Cove  street  has  been  purchased  by  the  company, 
and  a  taking   of  all  land  within   the  tei*minal  lines 

22  J^AYOR'S     ADDRESS. 

not  yet  acquii'ed  by  purchase  will  at  once  be 
recorded.  In  three  months  from  the  date  of  such 
taking,  which  time  is  allowed  to  the  present 
occupants  of  the  real  estate  before  they  are 
obliged  to  vacate,  the  city  will  be  able  to  begin 
the  construction  of  new  Cove  street,  and  this 
w^ork   will    be   pushed   to   early   completion. 

The  plans  for  the  station,  with  its  track  connec- 
tions, have  received  thorough  and  intelligent  study 
for  many  months.  As  finally  accepted  by  the 
Tenninal  Company,  approved  by  me,  upon  the 
advice  of  the  city  engineer  and  the  consulting 
architect,  and  also,  as  required  by  the  act,  by  the 
railroad  commissioners,  they  provide  highly  satis- 
factory accommodations  for  the  public.  The  track 
arrangements  seem  to  be  planned  so  as  to  handle 
conveniently  and  expeditiously  an  immense  amount 
of  traffic,  and  the  future  separation  of  suburban  and 
through  travel,  which  is  amply  provided  for,  is  a 
feature  of  great  im[)ortance.  The  company  has  met 
the  reasonable  recpiirements  of  the  public  in  a  liberal 
manner,  and  has  [)rovided  foi*  a  long  period  of 
iuture  growth  ;  and  the  station,  when  completed, 
can  confidently  be  expected  to  prove  one  of  the 
finest  and  most  convenient  railroad  terminals  to 
be  found  anvwhere  in  the  world.  Due  attention 
has  been  paid  to  the  architectural  appearance  of 
the    building.^^and  jthe  structure    should  add  to   the 


beauty  of  the  city.  Boston  is  to  be  congratulated 
upon  securing  such  an  important  and  valuable 
addition    to    its  transportation   facilities. 


I  called  attention  last  year  to  the  desirability 
of  providing  at  South  Boston  for  the  freight 
business  of  the  Old  Colony,  Boston  and  Provi- 
dence, and  'New  England  railroad  lines,  and  to 
the  necessity  of  abolishing  the  present  grade 
crossing  on  Congress  street  for  this  purpose. 
An  act  was  passed  by  the  last  legislature  pj'O- 
viding  that  the  commission  heretofore  appointed 
by  the  superior  court  for  the  abolition  of  this 
crossing  should  be  given  authority  to  lay  out  a 
comprehensive  plan  for  a  substitute  for  Congress 
street  in  South  Boston.  The  representatives  of 
the  commonwealth,  of  the  city,  and  of'  the  rail- 
roads concerned  have  all  agreed  upon  a  plan, 
which  has  been  approved  by  the  commission.  This 
includes  a  new  street  from  L-street  bridge  to 
Fort  Point  channel,  passing  over  the  railroad 
tracks  by  a  bridge,  crossing  the  channel  by  a 
new  bridge,  substantially  in  the  location  of  the 
present  New  England  railroad  bridge,  thence  by 
a  new  street  on  the  westerly  side  of  the  channel 
to  Congress  street,  and  by  Congress  street, 
widened  between  the  channel  and  Atlantic  avenue. 


to  Atlantic  avenue.  These  latter  features  of 
the  plan  will  be  of  especial  benefit  in  diverting" 
freight  traffic  to  and  from  South  Boston  from 
passing  through  the  extension  of  Summer  street, 
in  front  of  the  new  union  depot.  The  new  bridge 
will  be  at  the  foot  of  Summer  street  extended,  and 
this  street  and  the  new  street  in  substitution  for 
Congi'ess  street  will  afford  important  additional 
avenues  of  communication.  The  ample  facilities  for 
the  handling  of  freight,  adjacent  to  the  water 
front,  which  will  thus  be  afforded  should  prove 
of  great  future  commercial  benefit.  The  commission 
expects  to  make  its  decree  apportioning  the  expense 
in  the  near  future. 


In  addition  to  the  sum  of  $100,000  appropriated 
by  the  city  government  of  1895  for  work  upon 
the  Strandway  at  South  Boston,  the  further  sum 
of  $200,000  was  made  available  by  the  act  passed 
by  the  last  legislature,  providing  for  an  addi- 
tional $1,000,000  loan  for  the  completion  of 
certain  park  work.  Contracts  to  the  amount 
of  $200,000,  covering  the  work  of  rough  grad- 
ing as  far  as  H  street,  were  made  during  the 
past  year,  and  operations  under  them  are  being 
pushed  as  rapidly  as  possible.  The  amount 
available     will      complete     the     Strandway     about 


to  I  Street,  and  it  will  certainly  prove  one  of  the 
most  unique  and  attractive  features  of  our  park 
system.  A  long  stretch  of  public  beach,  fronting 
upon  a  fine  bay,  with  ample  accommodations  for 
bathing  and  boating,  immediately  adjacent  to  a 
district  having  a  population  of  upwards  of  70,000, 
and  within  about  two  miles  of  the  business  centre, 
will  be  a  possession  which  can  hardly  be  matched 
by  any  other  city. 

In  connection  with  the  question  of  joining  the 
Straudway  with  Dorchesterway  and  the  rest  of 
the  park  system,  as  contemplated  in  the  original 
plans  of  the  landscape  architects,  I  desire  to  present 
a  new  scheme,  which  seems  to  me  to  be  recom- 
mended by  many  strong  considerations.  This 
plan  was  referred  by  me  to  the  Merchants* 
Municipal  Committee,  and  has  received  the  hearty 
approval  of  that  body.  The  completion  of  this 
connecting  link  can  be  combined  with  the  aboli- 
tion of  the  present  grade  crossing  of  the  Old 
Colony  tracks,  on  Dorchester  avenue,  in  a  highly 
economical  and  desirable  manner.  This  abolition 
is  recognized  as  of  pressing  importance,  but  thus 
far  it  has  been  found  impossible  to  agree  upbn  any 
plan  satisfactory  both  to  the  people  of  South 
Boston,  the  railroad,  and  the  city.  A  plan  has 
now  been  prepared  by  the  city  engineer  for  re- 
locating    the     Old     Colony     tracks     between     the 


Crescent-avenue  and  South  Boston  stations,  carry- 
ing Dorchester  avenue,  Boston  and  Swett  streets 
over  the  new  location,  with  easy  grades.  The 
new  roadbed  crosses  the  Xew  England  tracks  by 
a  bridge,  and  provision  is  also  made  for  a  con- 
nection at  grade  for  the  transfer  of  freight 
to   and   from   the   South  Boston   yards. 

The  total  expense,  of  every  character,  involved 
in  this  relocation,  including  purchase  of  land, 
grading,  and  construction  of  bridges,  giving 
the  railroad  much  improved  •  facilities,  would 
amount,  according  to  the  estimate  of  the  city 
engineer,  to  about  $950,000.  This  sum  would 
not  be  very  largely  in  excess  of  the  cost  of 
any  othei*  satisfactory  plan  for  the  abolition  of 
the  Dorchester-avenue  grade  crossing;  and  it 
has  advantages  which  make  it  worth  much 
more  to  all  parties  concerned  than  any  abolition 
of  the  crossing  without  a  substantial  relocation 
of  the  tracks.  By  utilizing  the  ])resent  bed  of 
the  railroad  for  the  purpose  of  joining  the 
end  of  the  Strandway  with  Dorchesterway,  a 
large  expense  can  be  saved  to  the  city,  if 
it  is  assumed  that  the  original  plan  of  carrying 
the  Strandway  across  a  part  of  Dorchester  bay 
would  otherwise  have  to  be  carried  out.  This  plan 
would  therefore  accomplish  the  four  important 
results    of    doing    away    with    a    dangerous    grade 

MAYOirS     ADDRESS.  27 

crossing,  —  which  must  be  abolished  in  any  event 
at  a  large  expense,  —  of  removing  the  obstruction 
which  the  raih'oad  tracks  now  present  to  the 
development  and  expansion  of  the  adjacent  section 
of  South  Boston,  of  providing  the  required  con- 
nection between  the  Strandway  and  the  rest  of 
the  park  system,  and  of  opening  an  important 
new  avenue,  by  the  use  of  the  pi-esent  roadbed 
of  the  raih-oad  between  the  Strandway  and  Dor- 
chester  avenue    at   B    street. 

The  plan  prepared  by  the  city  etigineer  has 
been  pronounced  satisfactory,  from  the  standpoint 
of  railroad  engineering,  by  the  chief  engineer 
of  the  New  York,  XeW  Haven,  and  Hartford 
railroad,  and  it  seems  to  me  quite  likely  that 
it  will  be  accepted  by  all  parties  in  interest, 
if  a  fair  division  of  the  ex|)ense  involved  can 
be  agreed  upon.  I  trust  that  it  will  be  possible 
to  reach  this  i-esult  in  the  near  future,  and  the 
advantages  to  be  gained  by  the  city  are  so  great 
as  to  warrant  a  liberal  financial  contribution  on  its 
part.  If  this  plan  can  be  cariied  out,  T  also  believe 
that  it  would  be  advisable  for  the  city  to  accpiire  all 
of  the  shore  property,  mostly  marsh  lands,  lying  to 
the  eastward  of  the  railroad  between  the  Crescent- 
nvenue    station  and  the  end  of  the  Strandway. 



The  difficult  question  of  preparing  a  practical 
plan,  within  the  bounds  of  reasonable  financial 
expenditure,  for  the  abolition  of  the  grade  cross- 
ings in  East  Boston,  has  been  given  much  at- 
tention and  study  by  the  city  engineer.  Within 
the  last  few  months  the  representatives  of  the 
railroads  concerned  have  shown  a  disposition  to 
cooperate  with  the  city  in  this  matter.  A  new 
scheme,  providing  for  depressing  the  railroad  bed 
ten  feet  at  Saratoga  street  and  six  feet  at  Sumner 
street,  involving  an  estimated  expenditure  of 
about  $900,000,  exclusive  of  the  cost  of  lower- 
ing the  tracks,  has  recently  been  prepared  by 
the  Boston  and  Albany  railroad  company.  The 
position  taken  by  the  railroad  companies  as  to  the 
contributions  which  they  should  respectively  make 
to  the  total  cost  of  carrying  out  a  i)lan  is  a  serious 
obstacle  in  the  way  of  arriving  at  any  agi'cement, 
while  the  provisions  of  the  legislative  act  are  so 
unusual  that  under  it  the  city  probably  cannot 
bring  about  the  abolition  of  the  grade  crossings 
against   the    opposition    of  the    companies. 

It  seems  to  me  that  by  far  the  most  satisfac- 
toiy  solution  of  the  whole  problemTwould  be  the 
conversion  of  the  Boston,  Kevere  Beach,  and  Lynn 
railway    into    an    electric   line,    and    its    relocation, 


within  the  limits  of  East  Boston,  upon  some  street 
west  of  its  present  roadbed,  so  that  the  latter 
could  be  used  for  the  tracks  of  the  other  railroad 
companies.  This  plan  might  be  carried  out  to  great 
advantage  in  connection  with  the  proposed  new 
ferry,  as  the  landing  on  the  Boston  side  now  used 
by  the  Revere  Beach  railway  would  become  avail- 
able for  use  as  a  public  ferry-landing.  In  this 
manner  additional  facilities  could  be  secured  with 
the  least .  possible  increase  in  the  movement  of 
ferry-boats   across   the   harbor. 

The  matter  of  abolishing  the  gi-ade  cross- 
ings of  railroads  in  Charlestown,  of  which  the 
most  important  are  those  at  Cambridge  street, 
Prison  Point  bridge.  Main  street,  and  Rutherford 
avenue,  is  still  in  the  hands  of  the  commission 
appointed  by  the  superior  court.  The  problems 
involved  are  difficult  and  complicated;  and  some 
diversity  of  views  between  the  respective  repre- 
sentatives of  the  city  of  Boston,  the  city  of 
Cambridge,  the  railroads,  and  the  commonwealth, 
as  the  owner  of  the  land  occupied  by  the  state 
prison,  has  occasioned  unavoidable  delay  in  finally 
fixing  upon  plans.  Good  progress  toward  reach- 
ing a  final  conclusion  has,  however,  been  made, 
and  a  plan  has  now  been  prepared  substantially 
satisfactory  to  all  parties  concerhed  as  to  the 
Charlestown  side,  and  a  hearing  has  recently  been 

30  MAYOR'S     ADDRBS8. 

held   to   detemiine   the   construction    on   the   Cam- 
bridge  side. 

merchants'  municipal  committee. 

In  my  inaugural  address  a  plan  was  outlined  for 
the  formation,  on  a  representative  basis,  of  an 
advisory  committee,  designed  to  establish  "a 
strong  and  permanent  connecting  link  between 
the  city  government  and  the  leading  business 
organizations  of  the  city."  A  body  designated 
as  the  Merchants'  Municipal  Committee  was  ac- 
cordingly constituted,  consisting  of  two  represent- 
atives of  the  Associated  Board  of  Trade,  and 
one  I'epresentative  each  of  the  Chambei'  of  Com- 
merce, the  Clearing  House  Association,  the  Mer- 
chants' Association,  the  Real  Estate  Exchange, 
and  the  Shoe  and  Leather  Association.  I  have 
derived  valuable  assistance  during  the  year  from 
frequent  consultations  Avith  the  public-spirited  and 
broad-minded  business  men  who  were  selected  as 
membei's  of  this  committee.  Regular  meetings  have 
been  held  every  two  weeks  during  most  of  the  year, 
and  many  municipal  questions  of  large  importance 
have  been  discussed  and  voted  upon.  Recently  the 
members  of  the  committee  have,  at  my  request, 
taken  up  from  a  business  standpoint  the  problem 
of  reorganizing  'the  city  council,  and  have  given 
a    great   deal   of    time    and   thought   to    this   ques- 


tion.  They  have  enlisted  the  interest  and  co- 
operation of  various  organizations  and  individuals, 
inchiding  prominent  members  of  the  legislature, 
and  the  bill  which  has  just  been  made  public 
is  the  result  of  their  efforts.  The  experiment 
of  constituting  this  committee  has  fully  answered 
my  expectations,  and  I  am  satisfied  that  an 
organization  of  this  character  should  be  continued 
permanently  in  some  manner  in  connection  with 
the  city  government.  At  my  request  a  section  has 
accordingly  been  inserted  in  the  bill  referred  to, 
providing  for  a  permanent  Board  of  Commerce 
and  Finance,  to  act  as  an  advisory  body  to  the 
mayor,  the  city  council,  and  the  general  court, 
representative  of  the  organized  business  men  of 
this    city    and    authorized   to    speak    for    them. 


I  s[)oke  last  year  of  the  interest  of  the  city  of 
Boston  in  securing  "  such  amendments  to  the  tax 
laws  as  will  bring  them  more  into  harmony  with 
the  need.s  of  a  large  commercial  centre,  brought 
into  daily  competition  with  cities  in  which  tax- 
ation is  levied  in  a  manner  far  less  burdensome 
to  business  enterprise,"  and  advocated  some 
changes  designed  to  promote  the  commercial  and 
industrial  development  of  this  city.  The  Mer- 
chants' Municipal    Committee   took   up   the   matter, 


at  ray  suggestion,  and  gave  a  large  amount  of 
time  and  thought  to  it.  A  bill  was  framed  on 
the  general  lines  referi'ed  to,  and  its  passage  was 
advocated  before  a  committee  of  the  legislature. 
As  a  result  of  this  agitation  of  the  subject,  the 
legislature  provided  for  the  appointment  of  a 
special  commission  of  five  persons  to  "collate  and 
report  facts  concerning  taxation,  present  a  sum- 
mary of  conclusions  to  be  drawn  therefrom,  and 
suggest  any  changes  advisable  in  the  laws  of  the 
commonwealth  relating  to  taxation."  This  com- 
mission is  given  until  the  first  day  of  October 
next  to  make  its  report,  and  no  legislative  action 
can  therefore  be  expected  until  the  session  of 
next   year. 


In  my  inaugural  address  I  called  attention  to 
the  defects  of  the  present  system  of  electing 
aldermen,  and  advocated  some  measure  Avhich 
would  do  awav  with  its  manifest  faults.  The 
experience  of  another  year  under  the  present 
law  has  only  strengthened  the  conviction,  held 
generally  by  our  citizens,  that  something  better 
must  be  substituted  for  it.  Public  opinion  now 
seems  to  be  ripe,  not  only  for  a  change  in  the 
present   method   of    electing   aldermen,    but   in   the 


whole   constitution   of    both    branches   of   the   city 

Observation  of  the  workings  of  the  present  two 
branches  has  entirely  satisfied  me  that  a  single 
chamber,  if  properl}^  constituted,  would  be  a 
great  improvement  over  the  present  dual  organ- 
ization. I  am  strongly  opposed  to  the  mere 
abolition  of  the  common  council,  leaving  all  the 
legislative  powers  of  the  city  in  the  hands  of  a 
board  of  aldermen  consisting  of  a  small  number 
of  members;  but  marked  benefits  would,  in  my 
opinion,  result  from  the  practical  consolidation  of 
the  present  two  branches  into  a  single  chamber, 
intermediate  between  them  in  size,  and  combining 
ward  representation  with  representation  of  the  city 
at  large. 

The  present  city  council  is  a  survival  of  the 
organization  which  existed  under  the  charter  as  it 
stood  prior  to  1885.  The  change  then  made,  taking 
away  all  power  of  controlling  executive  business 
from  committees  of  the  council,  has  had  an 
important  influence,  fully  experienced  only  during 
the  last  few  years,  upon  that  body.  It  now 
seems  necessary  either  to  move  in  the  direction 
of  still  further  reducing  the  powers  of  the 
council,  including  its  control  over  appropria- 
tions, as  has  been  done  in  the  city  of  New 
York,   or   to    make    some    change    in    its    consti- 


tution,  designed  to  give  it  more  influence  and 
importance,  if  not  more  direct  power.  I  be- 
lieve strongly  in  adopting  the  latter  course. 

Even  with  all  the  executive  powers  vested  in 
the  mayor,  the  legislative  body  of  a  great 
city  has  important  functions  to  perform,  and  it 
would  be  a  distinct  loss  to  the  body  politic 
to  reduce  it  to  a  position  of  insignificance  and 
impotence.  In  the  first  place,  the  executive 
should  constantly  be  subject  to  close  obsei'va- 
tion  and  intelligent  criticism  by  the  legislative 
branch  of  the  government.  Secondly,  the  only 
way  to  avoid,  or  keep  within  any  [)roper 
bounds,  interference  with  local  affairs  by  the 
state  legislature,  is  through  a  local  legislative 
body,  of  such  character  and  strength  that  it  can 
safely  be  trusted  with  the  i>roper  powers  of  local 
legislation,  and  that  its  action  will  be  given 
weight  as  a  fair  expi'ession  of  local  sentiment. 
Thirdly,  the  council  has  important  duties  to 
perform  in  making  the  wisest  possible  applica- 
tion of  the  financial  resources  of  the  city,  and 
in  initiating  and  formulating  new  and  progressive 
municipal  policies.  In  this  city  we  should  at 
least,  in  my  opinion,  give  a  full  and  fair  trial 
to  a  city  council  constituted  in  a  different 
manner  from  the  ])resent  body,  and  having  only 
a    single    chamber,    befoie    deciding    to    take    any 


further     steps     in     the     way     of    diminishing     its 

The  work  of  formulating  a  reorganization  bill 
has  been  entered  into  with  a  desire  to  com- 
promise differences  of  opinion,  and  secure  a 
union  of  forces  upon  some  good  measure.  The 
bill  now  drafted  contains  ideas  and  provisions 
suggested  from  many  different  sources.  Without 
necessarily  approving  all  of  its  features,  I 
shall  give  my  earnest  support  to  any  practical 
measure,  generally  agreed  upon  by  the  persons 
actively  interested  in  this  movement,  which 
embodies  the  general  principles  which  seem  to 
me  essential  to  secure  the  improvement  of 
existing    political    conditions. 

The  provision  contained  in  this  bill  for 
the  election,  on  the  years  when  no  mayoralty 
election  is  held,  of  a  president  of  the  city  council, 
seems  to  me  an  excellent  one.  The  importance  of 
such  an  office  would  in  many  respects  be  second 
only  to  the  mayoralty,  and  the  contest  for  it 
would  be  sure  to  draw  out  a  full  vote.  The 
decrease  in  the  total  number  of  ballots  cast 
at  the  last  city  election  indicates  the  need 
of  some  greater  stimulus  to  bring  out  a  vote 
of  proper  proportions.  The  comparative  lack  of 
interest  which  characterized  this  election  may 
be   partly   accounted   for   by   the    fact    that   twelve 


out  of  the  fourteen  candidates  for  aldermen  nomi- 
nated by  the  two  leading  political  parties  were 
sure  to  be  elected,  and  it  may  reasonably  be  ex- 
pected that  there  would  be  more  active  attention 
to  the  choice  of  the  members  of  a  single  legis- 
lative body;  but  a  contest  between  two  or  more 
candidates  for  a  single  important  office  arouses 
the  voters  much  more  than  the  choice  of  a 
large  number  of  members  of  a  city  council  can 
possibly  do.  The  election  of  an  officer  who  is 
given  the  broad  powers  which  this  bill  proposes 
to  vest  in  the  president  of  the  city  council  will 
doubtless   excite   the   interest   of  the   voters. 

Changes  in  nominating  methods  have  so  length- 
ened the  municipal  campaign  that  it  now  begins 
too  soon  after  the  state  election,  if  not  actually 
before  it.  The  theory  of  the  law  is  that  there 
should  be  such  a  separation  between  the  two 
elections  that  the  votes  may  not  run  on  exactly 
the  same  party  lines.  In  order  to  promote  this 
object,  as  well  as  to  avoid  other  objections  to  a 
practically  continuous  political  campaign  for  the 
two  elections,  I  believe  that  the  date  of  the  city 
election  should  be  moved  forward  at  least  one 
week,  if  not  longer.  This  might  not  allow"  a  mayor- 
elect  sufficient  lime,  before  the  beginning  of  the 
municipal  year,  in  which  to  prepare  a  comprehen- 
sive  inaugural    address;  but    the    delivery  of    such 


an  address  might  with  decided  advantage  be  post- 
poned to  the  beginning  of  the  financial  year,  on 
February  first.  A  new  mayor  would  then  have 
I  the  benefit  of  one  month  in  oflSce  before  being 
obliged  to  outline  his  policy,  and  the  accounts  of 
the  financial  year  w^ould  be  made  up  for  his  use. 

In  spite  of  the  prospect  of  the  passage  of  some 
I'eorganization  measure  during  the  present  session 
of  the  legislature,  I  have  thought  it  best  to 
give  my  approval  to  the  act  passed  by  the  last 
legislature   providing  for   the  payment  to  members 


of  the  common  council  of  a  salary  of  $300  per 
-anmun,  and  forbidding  the  payment  of  any  money 
from  the  city  treasury  "for  or  on  account  of 
refreshments,  carriage  hire,  or  other  personal 
expenses,  incurred  directly  or  indirectly  by,  or  in 
behalf  of,  any  member  of  the  common  council 
oj'  any  committee  thereof."  The  payment  of  these 
jsalaries  will  cost  the  city  some  $7,500  more  than 
5uch  expenses  have  recently  amounted  to,  but 
I  did  not  think  it  proper,  after  the  approval 
of  this  act  by  the  people,  to  take  advantage  of 
the  anomalous  provision  which  gave  me  the  power 
to    prevent   it   from   going    into   efifect. 


I  desire  to  recommend  strongly  the  establishment 
by  the  city  of  a  statistical  deparlment,  to  be  under 


the  charge  of  an  unpaid  commission.  Full  infor- 
mation has  been  secured  as  to  the  organization 
and  methods  of  work  of  the  municipal  statistical 
offices  which  have  for  many  years  been  success- 
full}^  maintained  by  Paris,  Berlin,  and  other  lead- 
ing continental  cities.  Xo  American  city,  I  believe, 
has  3^et  established  such  an  office,  and  there  is  an 
opportunity  for  Boston  to  secure  the  credit  of 
leading  the  way  in  this  very  important  line  of 
work.  Such  a  department  should  supplement  the 
work  already  done  in  the  line  of  statistical  en- 
quiry by  the  governments  of  the  United  States 
and  of  the  commonwealth,  supervise  and  syste- 
matize such  work  of  this  character  as  is  already 
undertaken  by  other  departments  of  the  city  gov- 
ernment, such  as  the  board  of  health,  and  also 
pursue  special  lines  of  investigation  of  its  own. 
Another  important  feature  of  its  work  should  be 
the  systematic  collection  and  tabulation  of  com- 
parative statistics  of  other  municipalities.  An 
annual  publication,  giving  an  abstract  in  proper 
form  of  all  current  statistical  information  relating 
to  the  city,  such  as  is  published  by  some  Euro- 
pean cities,  would  also  be  of  great  utility.  Finan- 
cial compai'isons  of  the  cost  of  work  done  or 
service  rendered  in  different  years,  or  in  different 
cities,  would  be  valuable  in  disclosing  waste  or 
inefficiency.      One   member   of  such    a   commission 


should  be  a  business  man  skilled  in  financial  analy- 
sis, and  the  city  engineer  should  be  a  member, 
e.e  officio.  Such  a  department  could  be  started 
upon  a  very  small  annual  appropriation,  and  I 
trust  that  the  city  council  will  promptly  cooper- 
ate  with  me  in  this  matter,  and  by  the  passage 
of  the  necessary  ordinance  enable  this  important 
work  to  be  in  operation  b}'  the  beginning  of  tlie 
next   financial   year. 


The  board  of  elections,  established  last  year 
in  accordance  with  legislation  recommended  by 
my  predecessor,  has  upon  the  whole  worked  well 
and  produced  good  results.  While  simplicity, 
convenience,  and  concentration  of  authority  and 
responsibility  are  secured  by  the  new  system, 
thei'e  are  certain  dangers  connected  with  this 
very  centralization  of  control  of  all  matters  per- 
taining to  elections.  To  enable  the  present  plan 
to  work  successfully  there  must  be,  in  the  first 
place,  general  public  confidence  in  the  integrity 
and  ability  of  the  commissioners,  and  in  their 
freedom  from  improper  outside  influences  or 
selfish  political  motives;  there  must  also  be,  under 
the  bi-partisan  constitution  of  the  board,  full 
confidence  upon  the  i3art  of  each  of  the 
j)olitical  parties   in   the  commissioners   representing 


it.  The  office  subordinates  of  the  board  must 
also  be  men  of  good  character,  not  person- 
ally engaged  in  active  political  contests,  either 
between  factions  or  parties.  Any  general  feeling 
that  the  powers  of  the  board  were  improperly 
used,  directly  or  indirectly,  for  partisan  purposes, 
or  that  either  political  party  was  obtaining  thiough 
it  an  undue  advantage  over  the  other,  would  be 
fatal  to  its  permanent  usefulness.  The  board,  in 
short,  is  a  delicate  piece  of  machinery,  especially 
adapted  for  the  performance  of  a  certain  work;  it 
cannot  be  tampered  with,  and  it  should  not  have  any 
undue  strain  put  upon  it. 

Anything  in  the  nature  of  a  central  returning 
board,  with  practically  unlimited  powers,  would  not 
be  supported  by  the  public  opinion  of  our  citizens  ; 
but  under  the  i)i'esent  law  providing  for  the  re- 
counting of  ballots  cast  in  caucuses  and  conven- 
tions, the  election  commissioners  are  made  to 
occupy  somewhat  this  position.  It  is  impossible 
to  have  all  the  ballots  cast  in  the  city  of  Boston 
recounted  in  a  limited  time  in  the  office  of  the 
board  without  giving  rise  to  the  suspicion,  —  no 
matter  how  carefully  arrangements  for  recount- 
ing may  be  made,  and  although  such  suspicion 
may  have  no  basis  of  fact  to  rest  upon,  —  that  in 
the  process  of  recounting,  ballots  may  be  tam- 
pered   with,   to    change    the     result     of    a     close 



election.  "The  requirements  of  the  present  law, 
therefore,  not  only  impose  a  very  onerous  duty 
upon  the  election  board,  but  they  tend  to  subject 
the  present  system  to  a  sti^ain  which  should  not 
be   imposed   upon  it. 

Upon  the  othei*  hand  it  must  be  admitted 
that  candidates  for  office,  whether  in  caucuses 
or  at  the  polls,  have  the  right  to  an  accurate 
count  of  the  ballots;  rec6unts  have  too  often 
shown  that  the  count  at  the  polls  was  not 
reasonably  correct,  and  there  have  in  certain 
instances  been  clear  indications  that  the  count 
of   caucus   ballots   was   not   even  honest. 

It  would  not  seem  safe  to  do  away  with 
the  recounting  of  votes  cast  at  caucuses,  at 
least  until  they  are  placed  as  nearly  as  pos- 
sible •  under  the  same  legal  safeguards  as 
elections  ;  but  it  has  for  many  years  been  my 
belief  that  the  recounting  of  ballots  cast  at 
elections  —  which  is,  I  believe,  peculiar  to  this 
commonwealth — was  unnecessary  and  dangerous. 
I  desire  to  suggest,  as  a  substitute  for  such  re- 
counts, that  two  special  election  officers,  having 
no  other  duty  than  that  of  counting  and  tabu- 
lating the  votes,  and  selected  solely  for  their 
special  qualifications  for  this  work,  should  be  as- 
signed to  duty  at  each  polling-place  at  the  close  of 
the  polls.     Each  block  of  ballots  should  be  counted 


independently  by  each  of  these  counters,  to  verify^ 
the  result  of  the  vote,  which  should  only  be  tabu- 
lated  when  the  two  counts  agreed.  In  this 
manner  the  true  results  can  be  arrived  at 
fully  as  accurately  as  by  recounts.  Or  it 
might  be  found  desirable  to  have  all  the  ballots 
carried  by  police  officers,  at  the  close  of  the 
polls,  under  proper  safeguards,  to  a  large  hall,  to 
be  there  counted  by  a  force  of  expert  counters^^ 
under  the  supervision  of  the  election'  commis- 
sioners, and  in  the  presence  of  the  representa- 
tives of  different  political  parties  and  the  public. 
The  figures  thus  made  up  should  be  treated  as 
final,  and  the  ballots  should  either  be  destroyed 
at  once,  or  held  subject  to  be  called  for  by  the 
courts   or   by   the  legislature. 


The  complete  new  registration  of  the  voters  of 
Boston,  required  under  the  provisions  of  chapter 
449  of  the  acts  of  1895,  was  successfully  ac- 
complished, at  an  expense  of  about  $100,000.  At 
the  close  of  this  extra  registration  there  were  96,- 
746  names  upon  the  voting  list,  or  5,203  more  than 
the  largest  number  ever  before  on  the  list,  which 
was  at  the  municipal  election  of  the  year  1895. 
The  percentage  of  registered  voters  to  assessed 
])olls    was    sixty-two     per    cent.,    which    was     the 


same  percentage  as  at  the  municipal  election  of  1895^ 
This  would  not  seeni  to  indicate  the  existence  in 
this  city  of  any  such  peculiar  conditions  as  to  call 
for  the  expenditure  of  so  large  a  sum  of  money  for 
the  preparation  of  a  new  voting  list.  It  can  be 
positively  affirmed  that  the  woi'k  of  registration 
has  for  years  been  performed  in  Boston  with 
more  care  than  in  most  of  the  cities  of  the 
commonwealth.  If  any  public  interest  required 
the  state  to  impose  this  large  expenditure  upon 
the  city  of  Boston,  and  to  subject  its  citizens 
to  the  trouble  of  a  new  registration,  it  certainly 
requires  that  the  other  cities  of  the  common- 
wealth should  be  brought  under  the  same  pro- 
vision. But  the  new  register  of  voters  may  be 
worth  all  that  it  has  cost  in  time  and  money 
if  it  establishes  legislative  confidence  in  the  hon- 
esty  of  our   voting   lists. 


I  said  a  year  ago  that  it  was  worthy  of  seri- 
ous consideration  whether  the  established  legis- 
lative policy  as  to  the  regulation  of  caucuses 
should  not  be  carried  to  its  logical  end  by 
placing  them,  ^^  both  as  to  the  appointment  and 
payment  of  their  officers  and  as  to  the  laws 
regulating  their  holding,  upon  the  same  footing 
as    elections.'-       The    experience    of    another    year 

,44  MAYOR'S     ADDRESS. 

has,  I  think,  satisfied  nearly  all  fair-mindeo  polit- 
ical observers  of  the  need  of  such  further  steps. 
The  present  caucus  system  has  demonstrated  its 
capacity  to  bring  out  a  much  larger  vote  than 
was  polled  at  the  caucuses  held  under  the  old 
methods.  By  a  few  changes,  —  including  the  ap- 
pointment of  caucus  officers  in  the  same  manner 
as  election  officers  and  payment  for  their  ser- 
vices, the  opening  of  the  polls  as  early  as  twelve 
o'clock  to  permit  voting  in  the  noon  hour,  the 
making  of  nominations,  in  nearly  all  cases,  by  di- 
rect caucus  vote,  without  the  intervention  of  nomi- 
nating conventions,  and  the  securing  t<j  every 
voter  of  the  right  to  vote  in  his  party  caucus 
upon  making  oath  to  his  party  membership,  —  our 
caucuses  can  easily  be  made  into  true  primary 
elections,  giving  fair  and  accurate  expression  ta 
the  desires  of  the  majority  of  the  voters  of  the 
different  political  parties.  It  is  of  much  impor- 
tance, in  the  interest  of  good  municipal  govern- 
ment in  this  city,  that  these  additional  safeguards 
should  bq  thrown  around  the  caucus;  and  it  is 
to  be  hoped  that  the  work  of  the  special  recess 
committee  appointed  by  the  last  house  of  repre- 
sentatives to  investigate  the  conduct  of  caucuses  in 
Boston  will  result  in  the  passage,  at  the  coming 
session  of  the  legislature,  of  some  comprehensive 
and   satisfactory   law. 


Ultimately,  and  perhaps  in  the  not  distant 
future,  I  believe  that  the  difficulties  now  ex- 
perienced in  connection  with  the  counting  and 
recounting  of  ballots,  and  also  in  respect  to  de- 
termining what  constitutes  a  vote  upon  a  ballot, 
will  be  practically  removed  by  the  adoption  of 
some  simple  and  practical  voting-machine.  The 
commonwealth  has  already  taken  some  steps  in 
the  direction  of  providing  such  machines,  and  they 
were  used  in  the  city  of  Worcester  at  the  last 
state  election. 


I  expressed  last  year  the  opinion  that  "the 
numerous  organizations  among  our  people,  formed 
for  various  pur|)oses,  ought  to  play  an  impoi-tant 
part  in  the  work  of  keeping  the  citizen  in 
touch  with  the  city  government,  and  arousing 
him  to  a  sense  of  his  vital  interest  in  its  work,'^ 
and  stated  that  it  would  be  my  purpose  to  in- 
vite the  cooperation  of  all  societies  which  were 
prepared  to  take  up  municipal  questions  in  a 
public-spirited  manner.  In  pursuance  of  this  pol- 
icy, early  last  summer  a  number  of  representative 
charitable  and  philanthropic  organizations  were 
invited  by  me  to  cooperate  with  the  work  of  the 
institutions  department  by  constituting  an  ad- 
visory  board   on    public    institutions,    the    members 


of  which  should  visit  the  different  institutions  main- 
tained hy  the  city,  interest  themselves  in  their 
work,  and  make  from  time  to  time  such  recom- 
mendations for  their  improvement  as  they  might 
deem  proper.  This  board  was  organized  in 
the  month  of  August  with  twenty  members, 
representing  the  following  organizations  :  Asso- 
ciated  Charities,  Boston  Provident  Association, 
Children's  Aid  -Society,  Citizens'  Association, 
Committee  of  Council  and  Cooperation,  Massa- 
chusetts Prison  Association,  Massachusetts  So- 
ciety for  the  Prevention  of  Cruelty  to  Children, 
Medico-Psychological  Society,  Merchants'  Municipal 
Committee,  Municii)al  League,  Society  of  St.  Vin- 
cent de  Paul,  Suffolk  District  Medical  Society, 
Twentieth  Century  Chib,  United  .  Hebrew  Be- 
nevolent Association,  and  Young  Ladies'  Aid 
Societv.  The  board  was  divided  into  four  com- 
mittees,  of  five  members  each,  upon  children's, 
insane,  pauper,  and  penal  institutions,  respectively. 
Meetings  of  the  whole  board,  at  which  the  insti- 
tutions commissioner  and  myself  have  been  present, 
have  been  held  once  a  month  at  city  hall,  and 
formal  reports,  making  valuable  recommendations 
upon  many  important  matteis,  have  been  presented 
from  ti«ie  to  time  by  the  different  committees. 
The  board  is  composed  of  repiesentative  and 
public-spirited    men    and  women,    and   the    instilu- 

MAYOR'S     A  I)  DUE  SS.  47 

tions  department  has  already  materially  benefited 
by  their  advice  ;  I  have  no  doubt  that  their 
continued  cooperation  in  its  delicate  and  impor- 
tant work  will  be  productive  of  still  more  im- 
portant  and   far-reaching   results   in   the   future. 

This  board  partly  accomplishes  some  of  the 
objects  which  were  aimed  at  by  the  bill  for  the 
separation  of  the  institutions  into  four  classes, 
to  be  placed  under  three  separate  boards  of  trus- 
tees and  one  commissioner,  which  was  favorably 
reported  to  the  last  legislature  by  the  committee 
on  metropolitan  affairs,  but  was  defeated  in  the 
senate.  The  experience  of  the  past  year  has  only 
confirmed  me  in  the  conviction,  based  upon  the  * 
considerations  stated  in  my  inaugural  address,  that 
the  best  interests  of  the  institutions  demand  a 
change  in  the  present  system  of  centralized  admin- 
istration through  a  single  commissioner,  and  the 
passage  of  some  measure  for  the  appointment  of 
unpaid  boards  of  trustees;  the  present  institu- 
tions commissioner  heartily  sympathizes  with  this 
view.  The  arguments  in  favor  of  centralized  busi- 
ness management  seem  to  me  to  be  overborne,  in 
the  case  of  institutions  dealing  with  human  beings, 
by    other    considerations.      The    administration    of  \ 

charitable  and  reformatory  institutions  is  not 
merely,  or  even  primarily,  a  business  matter, 
while   of  course  they  must  be  conducted  with  due 


regard  to  business  principles  and  methods.  Hu- 
manitarian management  upon  a  scientific  basis  is 
not   inconsistent   with    true   economy. 

One  of  the  strong  arguments  in  favor  of 
administration  through  unpaid  boards  of  trustees 
is  that  the  management  of  the  various  classes 
of  institutions  would  be  put  upon  a  basis  where 
it  would  be  less  liable  to  be  afiected  by  polit- 
ical changes.  A  consistent  line  of  policy  could 
be  then  mapped  out,  with  the  assurance  that  it 
could  be  given  a  fair  trial  and  followed  for  a  term 
of  years.  The  present  system  of  administration 
affords  more  possibility  for  the  play  of  polit- 
ical influences  than  any  other  could  do.  I  am 
thoroughly  convinced  also  that  distinct  advan- 
tages are  gained  by  giving  representation  to 
women  in  connection  with  public  work  of  this 
cliaracter,  as  provided  in  this  bill;  I  have  there- 
fore increased  the  number  of  women  upon  the 
Board  of  Overseers  of  the  Poor  from  two  to 
three.  The  movement  for  the  passage  of  a  bill 
for  the  division  of  the  institutions,  containing 
substantially  similar  provisions  to  the  one  re- 
ported last  year,  will  be  renewed  at  this  session 
of  the  legislature,  and  will  receive  my  hearty 

Pending    the  passage     of    sucli     a    measure,    it 
will    be    the    endeavor    of    the    institutions    com- 


missioner  and  myself  to  make  every  improvement 
in  the  workings  of  the  institutions  which  finan- 
cial limitations  will  permit.  With  this  object  in 
view,  we  have  already  visited  a  number  of  the 
important  institutions  of  the  state,  recognized  as 
conducted  efficiently  and  in  harmony  with  the 
most  advanced  ideas.  It  must  be  admitted  that 
the  public  institutions  of  the  city  of  Boston 
have  not  in  the  past  been  as  well  managed  as 
simihu'  institutions  maintained  by  the  common- 
wealth, and  a  close  comparison  of  the  conduct 
of  our  institutions  with  that  of  similar  state  in- 
stitutions  should   certainly   prove  helpful. 

A  thorough,  scientific  examination  of  the  dietaries 
and  cooking  arrangements  of  the  difterent  institu- 
tions has  been  instituted  by  the  department;  it 
is  fully  expected  that  this  investigation  will  be 
productive  of  excellent  results,  and  possibly  of 
some  saving  in  the  cost  of  subsistence.  Modern 
chemistry  is  placing  the  whole  matter  of  nutrition 
and  cooking  upon  a  scientific  basis,  and  the  city, 
which  constantly  feeds  several  thousand  persons 
in  its  various  institutions,  should  fully  avail  itself 
of  the  results  of  scientific  inquiry  in  this  field.  I 
regret  to  be  obliged  to  acknowledge  that  the  food 
furnished  at  the  Marcella-street  Home  has  not  in 
the  recent  past  been  of  a  character  to  meet  fully 
the    admitted    requirements   of  gi-owing   children. 



The  question  of  starting  an  alphabetical  card 
catalogue  or  register  of  the  inmates  of  our 
different  institutions,  giving  as  full  information 
as  possible  about  each,  and  enabling  him  or 
her  to  be  traced  from  one  institution  to  another, 
has  received  careful  attention  at  the  hands  of 
the  advisory  board.  A  system  has  been  .agreed 
upon,  and   will  be  started  at   once. 

A  most  important  and  delicate  work  in  con- 
nection with  the  ])enal  institutions,  which  has 
been  too  much  neglected  in  the  past,  is  that  of 
assisting  discharged  i)risoners  to  make  a  fresh 
start  in  life,  and  become  self-su])i)orting  and  law- 
abiding  citizens.  It  seems  to  me  that  the  work 
of  the  institution  should  be  supplemented  by  pre- 
paring the  prisoner  for  leaving  it,  and  extend- 
ing a  helping  and  guiding  hand  to  him  at  the 
critical  moment  when  he  does  so.  The  success- 
ful performance  of  such  work  calls  for  unusual 
(jualities,  but  1  think  that  it  should  be  under- 
taken   by   the   institutions    department. 

In  filling  the  vacancy  recently  caused  by  the 
resignation  of  an  assistant  commissioner,  appointed 
as  a  physician  to  have  special  charge  of  the  medical 
Avork  of  the  dei)ai'tment,  it  was  determined  to  make 
the  position  a  purely  prof(\«!sional  one,  having  no 
administrative  duties,  and  to  give  it  a  corre- 
sponding title.     One   of  the  two   assistant  commis- 


sionerships  was  therefore  abolished,  and  the 
position  of  medical  director  was  created,  with 
the  same  salary.  This  new  position  has  been 
filled  solely  with  the  desire  of  securing  the  best 
possible  professional  qualifications  for  its  impor- 
tant  work. 

The  new  cell-house  at  Deer  island,  acconnnodat- 
ing  over  five  hundred  inmates,  is  ready  for  occupancy 
as  soon  as  light  can  be  sup[)lied  to  it,  and  this 
will  make  possible  a  somewhat  better  classification 
of  the  inmates.  An  electric  plant  is  now  in  process 
of  installation,  and  it  is  hoped  that  it  will  be  possi- 
ble during  the  coming  year  to  secure  a  sufficient 
appropriation  to  supply  by  electricity  all  the  light 
required  on  Deer  island.  I  believe  that  there  is 
great  need  of  careful  inquiry  into  the  practical 
operation  of  the  laws  under  which  persons  are 
sentenced  to  Deer  island.  The  j^opulation  of  this 
institution  is  larger  than  it  should  be. 

The  important  work  of  industrial  training  at 
the  reformatory  for  boys  at  Rainsford  island  has 
been  greatly  hampered  for  lack  of  suitable  plant  and 
buildings.  Plans  for  supplying  this  deficiency  are 
now  under  consideration,  and  some  additional 
machinery  has  already  been  ordered.  It  is  of  the 
highest  importance  that  the  boys  in  this  institution 
should  be  thoroughly  trained  in  some  line  of  in- 
dustrial oi'  mechanical    work.      Unfortunatelv  there 


is  not    sufficient   room    upon   the   island  to    enable 
the  reformatory  to  accomplish  the  best  results. 

A  summer  hospital  for  infants,  under  the  insti- 
tutions department,  was  opened  on  this  island 
last  summer,  several  of  the  old  buildings  having 
been  fitted  up  for  the  purpose,  and  a  physician-  of 
special  qualifications  and  experience  in  connection 
with  this  work  took  charge  of  it.  It  is  hoped 
that  it  will  be  found  possible  to  continue  this 
hospital  during  the  coming  summer. 

The  facilities  for  children  in  the  Marcel  la-street 
Home  are  'inadequate  in  several  respects,  and  an  ap- 
])ropriation  will  shortly  be  requested  for  an  addi- 
tional building,  to  provide  better  dormitory  and 
play-room  accommodations.  The  medical  work  of 
the  home  has  now  been  placed  under  a  regularly 
organized  medical  statt',  serving  without  pay. 

The  apparent  impossibility  of  securing  last  year 
the  very  large  appropriation  required,  prevented 
any  steps  from  being  taken  towai'ds  the  build- 
ing of  a  new  reformatory,  to  take  the  place  of 
the  present  house  of  correction  at  South  Boston, 
under  chapter  53G  of  the  acts  of  1890.  The 
question  of  finding  a  suitable  location  for  this 
institution,  within  the  limits  of  Suffolk  county, 
is  a  very  difficult  one,  and  it  is  questionable 
whether  the  necessary  land  can  be  purchased, 
and   proper,  buildings   erected,    within  the    limit   of 


$500,000  prescribed  in  the  act.  It  is  important, 
however,  that  some  steps  in  the  direction  of 
establishing  such  a  reformatory  should  be  taken 
as   soon    as   possible. 

The  old  police  boat  has  recently  been  transferred 
to  this  department,  and  .now  aflfords  a  much-needed 
addition  to  the  faciUties  for  reaching  the  institutions 
located  upon  the  islands  in  the  harbor. 


The  city  hospital  has  been  fully  maintained  dur- 
ing the  past  year  on  the  advanced  standard  which 
has  given  it  during  recent  years  such  a  high  rank 
among  the  great  public  hospitals,  not  only  of  this 
country,  but  of  the  world.  Some  of  the  important 
improvements  which  have  been  in  progress  have 
been  completed,  and  others  will  be  ready  for  use 
during  the  coming  year.  Two  new  surgical  wards, 
accommodating  fifty-nine  additional  patients,  have 
been  finished  and  occupied,  and  are  found  to  be 
the  best  wards  in  the  hospital.  The  new  surgical 
operating  rooms,  which  are  probabh"  the  most  ex- 
tensive and  complete  of  any  in  the  country,  and 
have  been  given  the  highest  praise  by  competent 
critics,  are  now  in  use,  marking  a  new  period  in 
the  history  of  the  hospital.  The  old  surgical  oper- 
ating building  is  in  process  of  reconstruction. 
Important  improvements  have  been  made  upon  the 

54  MAYOirS     ADDRESS. 

grounds.  A  complete  electric-light  plant  is  in  pro- 
cess of  installation.  The  plans  for  the  new  laundiy 
building,  so  much  needed,  for  which  the  sum  of 
iP36,000  was  appropriated,  are  nearly  completed, 
and  contracts  will  be  made  as  soon  as  the 
weather  permits  work  to  be  done.  This  building 
will  be  complete  in  all  its  arrangements,  and 
will  constitute  a  very  important  addition  to  .  the 
present  conveniences  of  the  hospital.  The  want 
which  the  trustees  feel  to  be  the  most  j)ressing 
at  present  is  that  of  further  accommodations  for 
nurses.  The  amount  necessary  to  purchase  for 
this  purpose  the  estates  on  the  corner  of  Mas- 
sachusetts and  Harrison  avenues,  which  are  within 
the  line  of  the  proper  boundary  of  the  hospital 
grounds,  namely,  $68,000,  was  once  appropriated, 
but  Avas  transferred  to  another  purpose.  The 
number  of  nurses  is  now  127,  and  this  number 
will  soon  be  materially  increased  ;  the  present 
nurses'  home  only  accommodates  about  70,  the 
others  being  distributed  through  the  hospital 
buildings,  taking  room  which  might  be  used  for 
the  accommodation  of  additional  patients.  I 
earnestly  recommend  an  appropriation  to  meet 
this   need. 

At  an  estimated  expenditure  of  $16,000,  a  coal 
pocket  can  be  constructed  for  the  use  of  the 
hospital,    into    which    coal    can    be    landed    by   the 


cargo,  affecting  an  appreciable  reduction  in  its 
cost,  so  that  the  expense  involved  could  be  saved 
in   five   or   six   years. 

The  subject  of  establishing  a  down-town  relief 
station,  for  the  temporary  care  of  j)ersons  injured 
by  accident  or  otherwise  in  the  business  section, 
has  for  some  time  received  careful  attention  at 
the  hands  of  the  trustees  and  the  staff.  Such  a 
relief  station,  connected  .  with  the  hospital  and 
under  the  same  management,  with  an  ambulance 
attached  to  it,  would  meet  an  important  want, 
and  its  establishment  has  been  strongly  urged 
by  many  well-known  citizens  and  business  firms. 
The  estimated  expense  for  a  plant  for  this  pur- 
pose, outside  of  rent  of  building,  is  $16,000, 
and  the  annual  maintenance  cost  is  estimated  at 
$25,000.  I  have  given  some  attention  to  this 
subject,  and  am  prepared  to  recommend  the 
necessary   appropriations. 

The  hospital  has  been  nearly  full  at  all  times 
during  the  year,  and  the  number  of  ambulance 
calls  has  more  than  doubled  over  previous  years. 
By  close  and  economical  management  and  the 
postponement  of  some  necessary  repairs  on  the  old 
buildings,  the  trustees  w^ill  be  enabled  to  finish 
the  financial  year  within  their   appropriation. 

5f )  MAYOR'S     ADDRESS 


Early  in  the  year  I  appointed  a  special  expert 
commission  to  inquire  into  the  necessity  of  improve- 
ments in  sanitation  and  ventilation  in  our  school 
buildings,  for  which  the  school  committee  had  re- 
quested a  large  appropriation.  The  result  of  this 
inquiry,  which  was  carried  to  the  point  of  prepar- 
ing plans  and  securing  reliable  estimates  of  cost, 
was  to  fully  establish  the  necessity  of  even  larger 
expenditures  than  the  school  connnittee  had  rec- 
ommended. In  the  month  of  March  I  sent  a 
messasre  to  the  citv  council  earnestly  recommend- 
ing  a  loan  appropriation  of  $300,000  for  this  pur- 
pose. Unfortunately,  owing  to  some  controversy 
as  to  the  respective  authorities  of  the  execu- 
tive and  of  the  school  connnittee,  the  passage  of 
this  loan  order  was  delayed  until  the  end  of 
June,  and  it  was  then  too  late  to  have  new  plans 
prei)ared,  as  i*equired  by  the  school  committee,  and 
to  comi)lete  any  large  ])()rtion  of  the  work  during 
the  sunnner  vacation.  Under  the  understanding 
arrived  at  with  the  connnittee,  thorough  plans  and 
specifications  have  been  prepared  for  all  work 
uudertaken,  and  these  have  been  subject  to  my 
api)roval.  The  sum  of  $172,9;')0.8()  has  now  been 
expended  out  of  the  amount  approi)riated,  mainly 
for    changes    in    the    plumbing   of  different   school- 


houses,  and  considerable  improvement  in  sanitary 
conditions  has  ah'eady  resulted;  but  a  large 
amount  of  this  work,  of  pressing  necessity,  still 
remains  to  be  done,  and  I  recommend  an  addi- 
tional loan  appropriation  for  its  continuance  during 
the   next  summer   vacation. 

The  school  committee  has  exceeded  its  appro- 
priations of  $2,173,400  for  the  current  financial 
year  by  the  sum  of  $117,000.  Responsible  execu- 
tive control  of  the  finances  of  the  city  is  seriously 
impaired  by  the  power  of  the  committee  to  spend 
money  beyond  the  appro])riation8,  and  its  readi- 
ness  to   use   such    power. 

I  believe  that  the  control  by  the  school  com- 
mittee of  important  executive  work,  such  as  the 
construction  and  repair  of  buildings,  tends  to  in- 
terfere with  its  proper  educational  functions,  and 
fails  to  secure  the  best  results  for  the  city.  It 
is  a  continuance  of  the  old  practice  of  adminis- 
tration by  committees,  which  has  been  condemned 
and  abandoned  in  connection  Avith  all  other 
city  business.  The  right  to  determine  what  work 
shall  be  done,  and  to  approve  plans  before  they 
ai*e  adopted,  properly  belongs  to  the  school  com- 
mittee: but  the  work  should  be  laid  out  l)y,  and 
performed  under  the  sole  direction  of,  some 
executive  ofticei',  who  can  be  lield  responsible 
foi'    results  secured    and    for    economy   in    expend- 


iture.  I  am  happy  to  be  able  to  state,  how- 
ever, that  there  has  been  a  very  marked  improve- 
ment during  the  past  year  in  the  professional 
standing  of  the  architects  selected  by  the  com- 
mittee, with  my  approval,  to  build  new  school- 

The  expense  of  purchasing  sites  for  new  school 
buildings  has  been  very  heavy,  and  under  the 
awards  of  the  street  commissioners  the  citv  has 
been  obliged  to  pay,  in  many  instances,  as 
high  as  one  hundred  per  cent,  in  excess  of 
assessed  valuations.  The*  approval  of  the  mayor 
is  required  when  a  lot  of  land  is  selected  by 
the  school  conunittee,  but  at  present  he  has  no 
control   over  the   price   to   be  paid   for   it. 


For  a  number  of  years  the  Typographical  Union 
has  been  endeavonng  to  secui*e  the  recognition 
by  the  city  of  the  organization  of  the  printing 
craft,  through  the  appointment  of  some  member 
of  the  union  as  superintendent  of  printing.  I 
stated  a  year  ago  that  "  in  some  foreign  coun- 
tries organizations  of  wage-earnei-s  take  a  con- 
stant, active,  and  intelligent  interest  in  municipal 
(juestions,  and  some  of  their  members  occupy 
im])oi'tant  i)ositions  and  render  useful  service  in 
connection  with  citv  governments,"  and  that  similar 


cooperation  mig*ht  well  be  encouraged  to  a  greater 
extent  than  in  the  past  in  American  cities. 
After  mature  consideration,  I  concluded  that  it 
would  be  advisable,  in  pursuance  of  the  policy 
thus  indicated,  to  place  in  charge  of  the  city 
printing  some  member  of  the  Typographical  Union 
thoroughly  qualified  to  fill  such  a  position,  and 
that  this  step  would  be  in  the  public  interest; 
I  am  now  entirely  satisfied  that  this  has  proved 
to  be  the  case.  It  seems  to  me  highly  desirable 
to  make  organized  bodies  of  intelligent  wage- 
earners  feel  that  they  are  directly  represented  in 
the  management  of  public  business,  particularly 
such   as   pertains   to   their   several   trades. 

The  city  printing  has  been  done  for  the  last 
twenty  years  under  a  contract  made  in  1876,  and 
allowed  to  run  on  without  change  since  that 
time.  About  $70,000  a  year  is  now  paid  out  for 
composition  and  press-work  alone.  When  the 
present  superintendent  of  printing  took  office,  I 
instructed  him  to  examine  carefully  into  the  ex- 
penditui-es  for  printing,  and  to  report  to  me 
whether  the  city  could  not  with  advantage 
establish  a  ])lant  for  itself,  to  do  a  part  or  the 
whole  of  its  own  printing.  After  careful  investi- 
gation, both  the  superintendent  and  myself  have 
become  satisfied  that  the  city  should  take  steps 
in    this    direction.       The    continuance   of    the   con- 

()0  MAYOR'S     ADDRESS. 

tract  referred  to  stood  in  the  way  of  adopting 
this  policy,  as  it  gave  the  contractor  all  of  the 
printing  of  the  city.  As  it  was  originally 
made  through  the  joint  committee  on  printing 
of  the  city  council,  at  a  time  when  it  exercised 
powers  since  vested  in  the  executive,  it  seemed 
necessary  that  action  for  its  abrogation  should  be 
taken  by  this  committee,  as  well  as  by  the  superin- 
tendent of  printing,  and  this  has  just  been  effected. 
Typogi'aphical  unions  have  for  .many  years 
urged  the  establishment  of  public  printing  plants 
for  the  execution  of  public  pi'inting,  and  the 
printers  of  this  city  have  warmly  favored  the 
l)roposed  establishment  of  a  municipal  plant. 
The  new  policy  will  be  inaugurated  in  a  care- 
ful and  conservative  manner.  Probably  only  a 
]>ortion  of  the  city  printing  will  be  undertaken 
at  first,  and  the  work  of  the  municipal  plant 
only  gradually  ext^ended.  In  the  meantime 
the  |)resent  contractors  will  continue  to  do  such 
])orti()n  of  the  city  printing  as  the  municipal 
plant  is  not  ready  to  take.  It  should  be  stated, 
in  justice  to  them,  that  both  the  quality  of  their 
work  and  the  manner  in  which  it  has  been 
executed   have   been    found    satisfactory. 

MAYOR'S     ADDRESS.  ()1 


Believing  in  the  principle  that  the  city  should  do 
directly  for  itself,  without  the  intervention  of  con- 
tractors, as  much  of  its  own  work  as  it  may  be  found 
practicable  and  economical  so  to  do,  I  have  during 
the  past  year  brought  entirely  under  the  control 
of  a  city  depaitment  a  branch  of  public  work,  of 
constantly  growing  importance,  which  had  hereto- 
fore been  intrusted  to  private  contractors.  Last 
May  an  electrical  construction  division  was  estal)- 
lished  under  the  department  of  public  buildings,  and 
heads  of  departments  were  instructed  to  apply  to  this 
division  for  all  electrical  work,  whether  coming 
under  the  head  of  repairs  or  new  construction.  An 
expert  practical  electrician  was  appointed  chief  of 
this  division,  and  its  work  has  assumed  considerable 
importance.  All  materials  required  for  electrical 
w^ork  have  been  purchased  at  wholesale,  at  the  low- 
est possible  prices,  and  carried  in  stock;  and  an 
efficient  electrical  corps,  able  to  handle  the  different 
bi*anches  of  electrical  work,  has  been  organized. 
This  city  has  been  somewhat  l)ehind  the  times  in  the 
introduction  of  electric  lighting  in  its  various  public 
buildings  and  institutions,  and  consequently  there 
is  an  urgent  demand  for  quite  a  large  amount  of 
new  electrical  installation,  including  a  number  of 
isolated  plants. 

()2  MAYOR'S     ADDRESS. 

The  work  of  installing  the  electric-lighting  plant 
at  the  city  hospital,  for  which  the  sum  of  .f-l:0,0()0 
had  been  appropriated,  was  turned  over  to  this 
division.  This  work  has  been  prosecuted  as  rap- 
idly as  possible;  a  contract  for  the  dynamos  and 
engines  has  recently  been  awarded,  at  a  low  figure, 
and  the  installation  will  be  completed  within  the  next 
few  months.  It  is  expected  that  this  plant,  which 
will  be  a  very  important  addition  to  the  hospital, 
will  be  of  the  most  modern  and  improved  character, 
and  that  it  will  prove  a  credit  to  the  city.  The 
cost  is  not  expected  to  exceed  estimates  given  by 
private  contractors  foi*  doing  the  same  w^ork  in  a 
less  satisfactory  manner. 

This  division  has  also  reconstructed  the  elec- 
trical work  at  the  Chestnut  Hill  reservoir,  which 
was  found  to  be  in  a  dangerous  condition,  and 
has  done  a  considerable  amount  of  work  at  Long 
island  and  Deer  island,  besides  installing  a  large 
number  of  lights  in  school-houses  and  city  offices, 
and  at  the  Stime  time  attending  to  all  the  calls 
for  electrical  repair  work,  which  have  assumed 
considerable   proportions. 

I  think  that  it  can  safely  be  claimed  that  the 
total  cost  of  doing  the  electrical  work  of  the  city 
will  at  least  be  no  greater  on  the  present  basis, 
while  the  quality  of  the  work  done  and  of  the 
stock    used,   which    is    a    matter    of   great   impor- 


tance,  will  be  better.  As  an  illustration  of  the 
loss  that  may  be  occasioned  by  imperfect  work, 
I  may  mention  that  it  has  been  found  by  the 
chief  of  this  division  that,  through  hnperfeet  in- 
sulation, the  county  of  Suffolk  is  i)aying  for 
$l,2(X)  woi-th  of  electricity  each  year  in  the  new 
court-house  which  is  lost  before  it  gets  to  the 
lights.  The  division  has  just  been  intrusted 
with  the  further  duty  of  inspecting  the  use  of 
electric  lights  in  the  different  offices  of  the  city, 
with  a  view  to  checking  unnecessary  waste  of 

The  snm  of  f  15,000  will  be  asked  for  this  branch 
of  work,  under  the  approi)riation  for  the  i)ublic 
buildings  department,  for  the  coming  financial 
year,  and  this  amount,  with  such  additional  sums 
as  may  be  provided  by  loan,  for  electrical  con- 
struction for  other  departments,  should  maintain 
the  division    upon    an    efficient    working   basis. 


The  total  length  of  overhead  wires  in  the  district 
in  which  the  work  of  placing  wires  underground 
was  carried  on  during  1896  was  about  fourteen 
million  feet,  about  two-thirds  of  which  will  be 
removed  as  soon  as  the  several  companies  own- 
ing them  have  their  underground  cables  drawn  into 
])lace    and    ])roperly    connected.      1()7,000    feet    of 


•  subway,  ami  784,000  feet  of  ducts,  with  614 
manholes,  Avere  constructed.  A  large  amount  of 
abandoned  wires  have  been  removed,  and  about 
3,300  offices  and  buildings  were  inspected  to  as- 
certain if  the  wires  w^ere  properly  fused.  Some 
1,500  notices  of  defects  were  sent  to  the  inter- 
ested  parties.  The  work  of  the  interior  wiring 
division  has  materially  increased,  wiring  and  ap- 
pliances having  been  inspected  for  over  1,800  arc 
lamps,  70,000  incaiulescent  lights,  and  694  motors.. 
AVires  and  appliances  in  process  of  installation  in 
all  new  buildings  were  carefully  inspected.  None 
of  the  seventeen  fires  caused  by  electricity  during 
the  year  were  due  to  wires  or  fixtures  which 
had  been  inspected  by  the  department.  Frequent 
measurements  have  been  made  of  the  insulation 
of  the  electric  plants  of  theatres,  hotels,  and  other 
large    buildings. 

nrrLDixc;  department. 

Notwithstanding  disturbed  financial  conditions, 
the  numl)er  of  permits  issued  by  the  building  de- 
partment for  the  erection  and  alteration  of  build- 
ings has  exceeded  the  I'ccord  of  any  previous 
year.  The  inspection  force,  which  has  for  some 
time  been  insufficient,  has  been  materially  strength- 
ened by  the  apj)ointment  of  two  additional  build- 
ing  inspoctois    and    three    additional    ins])ectors    of 


plumbing.  Through  this  increase  it  has  been 
possible  to  oi'ganize  the  department  into  divi- 
sions, consisting  of  an  architectural  division,  a  con- 
struction division,  a  plumbing  division,  an  egress 
division,  and  an  elevator  and  hoistway  division, 
each  under  a  separate  head.  The  legal  work 
connected  with  this  department  has  been  in- 
creasing so  rapidly  as  to  call  for  the  special 
detail  of  an  assistant  of  the  law  de|)artment, 
which  has  produced  much  more  satisfactory  re- 
sults in  checking  and  punishing  persistent  attempts 
to   violate    or   evade   the   building   laws. 


For  the  reasons  given  in  my  inaugural,  I 
a])pointed  early  in  the  year  a  consulting  archi- 
tect, attached  to  the  mayor's  office.  Experience 
during  the  year  has  constantly  demonstrated  the 
necessity  of  having  such  an  officer,  if  the  mayor 
is  to  exercise  with  any  care  and  intelligence  the 
important  powers  relating  to  the  building  opera- 
tions of  the  city  now  placed  in  his  hands  by  the 
charter.  Important  matters  have  constantly  been 
referred  to  the  consulting  architect,  and  reported 
upon  by  him,  and  he  has  in  many  ways  ren- 
dered    valuable   services   to    the   city. 

The   architect    division   of    the   public    buildings 
department    has   been   thoroughly   reorganized    and 


placed  upon  an  efficient  working  basis,  under  the 
direction  of  a  well-trained  architect.  Even  under 
the  present  system  of  employing  private  architects 
for  all  new  buildings,  questions  are  constantly 
arising  which  should  be  referred  to  this  divi- 
sion, and  from  time  to  time  the  city  has  impor- 
tant pieces  of  work,  coming  under  the  head  of 
repairs  rather  than  of  new  construction,  which  call 
for  services  which  it  can  well  render.  It  also 
has  an  important  function  as  a  centi*al  reference 
and  record  office  for  the  plans  of  all  city  build- 
ings. It  is  necessary,  further,  that  all  repair  work 
involving  any  reconstruction  should  be  carefully 
jjlanned,  and  that  drawings  and  specifications  for 
its  execution  should  be  prepared  before  it  is 

Aside  from  the  duty  devolving  upon  the  archi- 
tect division  of  supervising  the  completion  of  build- 
ings in  progress  at  the  time  when  the  architect 
department  was  abolished,  several  of  which  have 
only  recently  been  finished,  it  has  had  charge  of 
the  important  alterations  recently  undertaken,  and 
now  nearly  completed,  in  the  upper  stories  of 
citv  hall.  These  alterations,  which  will  cost  about 
$15,000,  will  practically  add  some  ten  thousand 
square  feet  of  floor  space,  in  well-lighted  rooms 
suitable  for  business  offices  and  engineering  work, 
to  the  present   cramped   accommodations. 


I  am  strongly  in  favor  of  improving  and  ex- 
tending the  existing  office  accommodations  of  the 
city  govei'nment  in  or  immediately  adjacent  to 
city  hall,  and  of  putting  off  for  many  years  to 
come  the  expensive  undertaking  of  building  a 
new  hall.  In  accordance  with  this  policy,  I  have 
urged,  since  the  beginning  of  last  year,  the 
acquisition  by  the  city  of  the  estate  owned  by 
the  Massachusetts  Historical  Society,  between  the 
old  Probate  building  and  Tremont  street.  This 
building  is  of  fireproof  construction,  and  four 
additional  stories  can  be  added  to  it  at  an  esti- 
mated  expense  of  about  $130,000.  In  order  to 
prevent  the  possible  sale  of  this  estate  to  other 
parties,  the  two  lower  floors  of  the  building  were 
leased  by  the  city  during  the  year,  with  the  right 
to  purchase  the  whole  building  for  the  sum  of 
$200,000.  I  am  gratified  to  l)e  able  to  state  that 
such  arrangements  have  now  been  made  that  the 
city  can  in  all  probability  secure  the  title  to  this 
building  for  a  cash  payment  of  $50,000,  and  that 
$25,000  of  this  amount  has  just  been  provided 
by  loan.  An  architect  has  been  selected  for  the 
building  of  the  additional  stories,  and  the  plans 
will  soon  be  ready.  AVhen  this  addition  is  com- 
pleted, the  city  will  secure  a  large  increase, 
at  a  veiy  reasonable  cost,  in  its  present  insuffi- 
cient  business   quartei's,  and   a   substantial    amount 


of  money  now  expended  for  rentals  can  be  saved. 
Later  the  Probate  building  should  be  rebuilt, 
to  correspond  with  tlie  Historical  Society  building, 
and  the  city  will  then  have  a  continuous  struct- 
ure, nine  stories  high,  extending  from  Court 
square  to  Tremont  street,  and  connected  directly 
with    the  city    hall. 


AVork  upon  th6  North  End  park  is  now  being 
vigorously  prosecuted.  A  contract  for  tei'racing, 
grading,  and  finishing  the  portion  of  the  park 
west  of  Atlantic  avenue  is  wfeU  under  way,  and 
will  be  completed  by  next  summer.  After  care- 
ful study,  |)lans  have  been  ])repared,  calling  for 
an  expenditure  of  about  $30,000,  for  the  bath- 
house for  women,  with  an  adjoining  administra- 
tion building,  to  be  placed  upon  the  southerly  side 
of  the  portion  of  the  park  adjacent  to  the  harbor. 
Plans  for  the  ])iling  and  the  covered  pier  have 
been  completed  by  the  city  engineer,  and  the  work 
of  pile-driving  will  shortly  be  begun;  the  pier, 
which  has  an  open  promenade  on  its  roof,  and  bath- 
houses for  men  connected  with  it,  should  also  be 
ready  for  use  by  next  summer.  A  bathing-beach 
has  already  been  made,  and  it  is  expected  that  the 
facilities  for  bathing  in  the  open  harbor  which  will 
thus  be  furnished  will  be  very  largely  used  by  the 

MAYOR'S     ADDRESS.  (59 

residents  in  this  thickly  settled  section.  A  protected 
l)lace  for  small  boats  will  be  provided  between 
the  pier  and  the  shore.  The  long-delayed  com- 
pletion of  this  local  marine  park,  which  now  seems 
near  at  hand,  will  add  a  nnique  and  popular  feature 
to  the  park  system.  The  provision  by  a  nmnici- 
pality  of  attractive  accommodations  for  open-air 
bathing,  in  the  middle  of  the  water  front  and  close 
by  the  most  thickly  populated  districts,  is  an  im- 
portant departure,  and  its  results  will  be  watched 
with  much  interest. 

During  the  last  year  the  need  of  some  better 
organization  and  more  responsible  control  of  the 
important  and  varied  work  of  this  department  be- 
came manifest,  and,  at  my  suggestion,  the  office  of 
general  superintendent  was  created.  This  position 
has  been  temporarily  held  during  the  last  few 
months  by  a  member  of  the  engineering  force  of 
the  , department,  and  a  permanent  appointment  has 
just  been  made.  After  carefijl  consideration  of  the 
mattei*,  the  commission  decided  that  this  important 
positioji  could  only  be  filled  satisfactorily  by  a 
man  of  special  training  in,  and  qualifications  for, 
])ark  work,  and  the  aj)pointment  was  made  with 
the  sole  desire  of  securing  the  best  man  for  the 
pur])()se,  wherever  he  could  be  found. 

'I'he  connnission  has  recently  become  satisfied 
that  the  woi-k  of  the  de])artment    could    be    better 


carried  on  if  the  main  office  were  located  in  the 
centre  of  the  park  system.  It  has  therefore  been 
decided  to  make  use  of  the  park  building  at  Pine 
Bank,  and  the  office  will  be  removed  to  that  point 
within  the  next  few  months. 

The  transfer  of  the  park  police  force  from 
the  park  department  to  the  police  department 
has  been  decidedly  disadvantage  ous,  and  the  park 
commission  will,  with  my  approval,  apply  foi*  the 
passage  of  an  act  restoring  this  force  to  its 
control.  Effective  administration  of  the  park 
system  absolutely  requires  that  the  officers  charged 
with  the  duty  of  enforcing  laws  and  regulations 
within  the  park  limits  shall  be  under  the  inmie- 
diate   direction  of  the    park  authorities. 


The  necessity  of  reducing  durmg  the  winter 
season  the  number  of  men  employed  by  the 
sti-eet  department,  owing  to  the  impossibility  of 
carrying  on  at  that  time  the  work  of  street 
construction,  has  long  been  a  source  of  embar- 
rassment.  While  it  is  desirable,  both  from  the 
standpoint  of  maintaining  an  efficient  working 
organization  and  from  that  of  })roper  considera- 
tion  for  the  men  employed,  to  maintain  the  force 
as  nearly  as  possible  upon  a  permanent  basis, 
nevertheless  considerable  reductions   in  the  number 


of  men  employed  are  sometimes  necessary.  The 
superintendent  of  streets  has  lately  proposed  a 
plan  for  dealing  with  this  difficulty  which  meets 
with  my  hearty  approval,  and  it  is  expected 
that  it  will  shortly  be  put  into  eifect.  This 
proposal  is  that  the  minimum  number  of  em- 
ployees in  each  division  of  the  department 
whose  services  ai'e  needed  all  the  year  round 
should  be  carefully  estimated;  that  employees 
up  to  this  number  should  be  put  upon  the  basis 
of  a  permanent  force,  to  be  constantly  employed; 
and  that  all  employees  in  excess  of  this  number 
should  be  ranked  as  substitutes,  to  be  employed 
only  during  such  portions  of  the  year  as  the 
department  has  occasion  for  their  services, 
vacancies  in  the  permanent  force  to  be  filled 
from  this  list  of  substitutes.  This  is  sub- 
stantially the  same  system  which  is  success- 
fully applied  in  the  police  and  fire  departments, 
and  it  would  seem  to  be  a  more  busine§s-like 
policy  for  the  city,  and  more  fair  and  satisfVictory 
to  the  men.  Even  on  this  basis  the  number  of 
men  permanently  employed  by  the  street  depart- 
ment  would    be   in    excess    of  two   thousand. 

In  this  connection,  I  desire  to  call '  attention 
to  one  serious  difficulty  which  the  street  depart- 
ment suflers  fnmi.  The  laborious  nature  of  its 
work   calls    for  men  of  good  health   and  strength. 


At  present  there  is  a  considerable  percentage 
of  old  men  in  the  different  divisions,  who  are 
not  entirely  fitted  for  the  work  which  they  are 
called  upon  to  perform.  The  majority  of  these 
men  have  grown  old  in  the  sei'vice  of  the  city, 
and  the  street  department,  under  its  various 
heads,  has  not  eonsidei*ed  it  jnst  or  proper  to 
discharge  them;  they  have  been  continued  from 
year  to  year,  somewhat  lessening  the  efficiency 
of  the  service,  and  making  it  difficult  for  the 
heads  of  divisions  to  accomplish  the  best  results. 
I  submit  this  difficulty  to  your  consideration. 

There  is  one  important  defect  in  the  policy  which 
has  been  pursued  by  the  city,  under  pressure  of 
financial  necessities,  in  connection  with  the  main- 
tenance of  street  snrfaces.  The  proper  system  to 
follow  is  that  of  constantly  repairing  defects,  as  fast 
as  they  become  noticeable.  But  this  would  have  to 
be  paid  for  out  of  the  maintenance  appropriation, 
and  the  pressure  upon  this  fund  has  been  so  great 
that  the  department  has  been  obliged  to  allow 
street  surfaces  to  wear  out  almost  entirely,  and 
then  to  renew  them  out  of  a  loan  apj)ropriation. 
If  the  city  could  be  divided  into  small  districts 
and  a  few  men  kept  constantly  at  work  in  each, 
repairing  minor  defects  and  keeping  the  street 
surfaces  up  to  pro])er  condition,  it  would  result  in 
decided  economy  in    the  long  run.      The  parkways 

M  A  YOirS     ADDRESS.  73 

are  now  cared  for  on  this  system  of  constant 
repair  work,  with  most  excellent  and  economical 

It  has  been  the  policy  of  the  street  department 
durrnjjf  the  past  year  to  extend  as  far  as  possible 
the  use  of  asphalt  for  pavements,  and  a  consider- 
ably larger  amount  of  such  pavement  has  been 
laid  than  in  any  jDrevious  year.  I  am  strongly  in 
favor  of  the  increased  use  of  asphalt  for  street 
surfaces.  Within  the  last  ten  or  fifteen  years 
the  laying  and  maintenance  of  asphalt  streets 
have  been  reduced  in  this  country  to  a  thoroughly 
scientific  basis,  and  recently,  with  the  improved 
methods  which  have  been  introduced,  and  some 
cheapening  of  cost,  the  area  of  asphalt  pave- 
ment in  our  principal  cities  has  been  increasing 
vei'y  rapidly.  Boston  has  been  somewhat  back- 
ward in  appreciating  the  advantages  of  this  form 
of  street  surface;  I  think  that  it  should  be  used, 
as  it  has  been  this  year  on  Huntington  avenue 
and  the  extension  of  Columbus  avenue,  upon  all 
streets  to  which  it  is  suited.  The  city  of  New 
York  has  been  expending  the  sum  of  $1,000,000 
a  year  upon  asphalt  streets,  and  they  are 
being  extensively  laid  in  tenement,  as  w^ell  as 
in  residential,  districts;  it  is  claimed  that  the 
rate  of  mortality  in  certain  tenement  districts  has 
actually    been    i-educed    by    the    asphalt    j)avement, 

*74  MAYOR'S     ADDRESS. 

owing  to  its  far  greater  cleanliness.  The  prob- 
lems of  street  watering  and  of  street  cleaning 
are  greatly  simplified  wherever  asphalt  is  used, 
and  it  has  shown  its  abilit}'  to  stand  even  the 
heaviest  traffic  about  as  well  as  any  other  form 
of  pavement. 

With  the  beginning  of  the  present  calendar 
year  the  department  has  established  a  small  charge 
for  each  permit  issued  for  making  an  opening  in 
a  street,  or  for  any  other  purpose 


Work  upon  the  five  wide  avenues  extending  out 
from  the  city  has  been  vigorously  prosecuted  and 
will  be  pushed  to  completion  during  the  coming 
year.  The  construction  of  Commonwealth-avenue 
extension  to  the  Newton  line,  of  Bi-ighton 
avenue  from  Commonwealth  avenue  to  Union 
square,  and  of  Huntington  avenue  from  Copley 
square  to  the  Brookline  line,  have  been  substan- 
tially completed.  The  extension  of  Columbus 
avenue  has  been  completed  as  an  asphalt  street 
from  Massachusetts  avenue  to  the  Roxbury  cross- 
ing, and  as  a  telford  macadam  street  from  West 
Walnut  park  to  Walnut  avenue,  leaving  an  unfin- 
ished gap  of  about  one  mile  between  these  sections. 
Blue  Hill  avenue  has  been  practically  finished  from 
Grove  Hall  to   the    ])rincipal  enti'ance   to  ^Franklin 

MAYOR'S     ADDRESS:  <  o 

park,  and  one  of  the  two  roadways  has  been  so 
far  completed  as  to  be  in  use  from  Franklin  pai-k 
to  Walk  Hill  street. 

A  large  area '  of  macadam  streets  has  been 
wholly  or  partially  constructed  under  the  assess- 
ment law,  and  twenty-eight  public  streets  have 
been  wholly  or  partially  repaved  or  surfaced  at  the 
expense  of  the  city.  About  157,000  square  yards 
of  macadam,  51,000  square  yards  of  asphalt, 
27,000  square  yards  of  granite  pavement,  and  13,000 
square  yards  of  artificial  stone  sidewalks,  have 
been  completed  during  the  year.  96,000  feet,  or 
about  nineteen  miles,  of  new"  edgestone  have  been 
set,  as  against  about  50,000  for  an  ordinary  year; 
and  over  131,000  square  yards  of  block  pave- 
ments, requiring  over  2,000,000  new  blocks,  have 
been  laid  in  streets  and  guttei's,  against  105 ,()()() 
square   yards  for   the   lai'gest  year  heretofoi*e. 

Two  new  crushers,  of  the  latest  improved 
j>attern,  have  been  set  up,  one  in  Koxbui-y  and 
one  in  West  Roxbury,  so  that  the  paving  division 
now  has  seven  in  operation;  important  improve- 
ments in  screens,  to  secure  the  diffei*ent  sizes 
of  stone  required  for  street  work,  have  been  made. 
Improvements  in  tlie  two  stone  crusheis  in  the 
Brighton  district  have  also  been  nuide,  saving 
labor  in  shovelling  stone  and  otherwise  increas- 
ing their  output.      All  of  the  immense  quantity  of 


cracked  stone  needed  for  the  work  upon  tlie  new 
avenues,  as  well  as  the  large  amount  required 
for  the  regular  work  of  the  division,  was  turned 
out  by  the  city's  crushers,  with  the  exception  of 
the  stone  for  one  section  of  Blue  Hill  avenue. 
Close  attention  has  been  given  to  the  matter  of 
allowing  only  the  hardest  kind  of  stone  to  be 
put  through  the  crushers,  and  the  best  of  ma- 
terial for  street  work  has  thus  been  secured. 
Steam  power  has  been  substituted  for  horses  in 
loading  edgestones  at  the  South  End  yard,  seem- 
ing  greater   economy   and    a   saving   of  time. 

'J^he  extensive  work  involved  in  the  construction 
of  Cottage  Farm  bridge  has  been  completed,  and 
a  loam  speedway  seven-eighths  of  a  mile  long  has 
been  constructed  between  this  bridge  and  Brighton 

The  sti*eet- inspection  work  has  been  wholly  re- 
organized, and  new  regulations  have  been  made  as 
to  the  opening  of  streets,  so  that  each  one  can 
be  systematically  followed  up  and  the  jM'oper 
replacing  of  the  roadway  surface  secured.  Under 
the  dii'ection  of  the  street  dej)ai'tment,  the  West 
End  Sti'cet  Kailway  Company  has  put  in  a  new 
type  of  rail,  especially  suited  to  an  asphalt  street, 
with  a  flush  lip.  Over  twenty-four  miles  of  track 
work  have  been  ]'ej)aved  by  this  comj)any  with 
new    blocks,    under    the    inspection    of    the    depart- 


rnent,  thus  securing  tlvis  large  amount  of  inij)roved 
roadway   service. 


Through  the  loan  appropriations  secured,  ihe 
sewei'  division  has  been  enabled  during  the  year 
to  enter  upon  a  nunibei'  of  pieces  of  important 
construction,  long  delayed  and  urgently  needed, 
and  a  larger  amount  of  work  has  been  done  than 
evei'  before  in  the  history  of  the  division,  nearly 
eiofht  hundred  men  havino*  recentlv  been  em- 
ployed.  The  connections  with  the  metropolitan 
sewer  system  in  East  Boston  and  Charlestown 
are  well  under  way,  and  will  be  conii)leted  dur- 
ing the  coming  year,  to  the  great  benefit  of  the 
residents  of  these  sections.  In  Dorchester,  the 
auxiliary  pumping-station  at  Lyons  street  has  been 
completed,  and  the  Shanu*ock-street  and  Devon- 
street  outlets  have  been  begun.  In  South  Bos- 
ton, the  D-street,  Seventh-street,  and  Dorr-street 
outlets  have  been  started,  and  in  Koxbnry  the 
Guild-row  relief  sewer  and  the  extension  of  the 
Dorcliester-brook  main  sewer  are  under  way.  A 
beginning  has  also  been  made  upon  the  construc- 
tion of  the  Canal-street  relief  sewer,  which  has 
been  adv^ocated  for  many  years.  There  are  many 
old  sewers  in  the  city,  inadequate  and  unfit  for 
use,  which  should  be  replaced  by  new  ones  as 
fast  as    money   can    be    secured. 


The  necessary  repairs  upon  the  valuable  pump- 
ing plant  at  the  main  drainage  work^  have 
been  partially  made,  and  provision  for  completing 
them  must  be  made  during  the  coming  year. 
The  need  of  an  incinerating  plant  in  connection 
Avith  these  works,  for  disposing  of  the  miscel- 
laneous articles  collected  at  the  exit  of  the  sewer, 
has  long  been  felt,  and  an  order  for  the  con- 
struction of  a  small  incinerator  has  just  been  given. 
The  new  main  channel  of  Stony  brook,  from  the 
gate-house  to  the  existing  channel  south  of  Hogg's 
bridge,  is.  well  under  way,  and  will  also  be 
finished    during   the   year. 

The  sewer  divisicm  has  charge  of  all  natural 
watei'-courses  and  surface  water,  and  this  is  an 
extremely  complicated  and  difficult  matter  to  deal 
with.  Some  legislation  in  relation  to  such  water- 
courses is  greatly  needed,  and  will  be  applied  for 
at    this   session   of  the   legislature. 

The  maintenance  appropriation  of  this  division 
is  inadecjuate  for  keeping  the  sewerage  system 
in  proper  condition,  and  the  work  of  cleaning  out 
catch-basins  cannot  be  done  as  often  as  it  should 
be.  .  A  machine  for  this  purpose,  which  has  been 
successfully  used  in  Canada,  has  been  ordered, 
and   will    shortly   be    in    operation. 

MAYOR'S     ADDRESS.  79     * 


Both  (luring  the  last  year  and  the  year  before, 
the  sanitary  division  was  obliged  to  expend  a  con- 
siderable amount  in  excess  of  its  appropriation. 
In  1895-6  the  appropriation  was  $400,000,  and  the 
expenditures  about  $432,000,  while  for  the  year 
1896-7  the  appropriation  is  $435,000,  and  the 
expenditures  will  amount  to  about  $475,000.  The 
latter  sum,  however,  is  still  less  than  the  amount 
which  was  expended  by  the  sanitary  division  for 
the  year  1893-4,  and  very  slightly  in  excess  of 
its  expenses  for  the  years  1892-3  and  1894-5. 
The  increased  expenditure  of  this  year  over  the 
last  seems  a  large  one,  but  a  careful  analysis  of 
the  accounts  of  the  division  shows  that  the  greater 
cost  is  more  than  balanced  by  increased  work, 
performed,  and  I  am  satisfied  that  it  has  been 
managed  in  a  careful  and  economical  manner. 
The  simple  fact  is,  that  the  demands  of  our 
citizens  in  this  line  of  service  are  rapidly  in- 
creasing^ from  vear  to  vear,  and  these  demands 
have  to  be  met.  House  dirt  and  offal  must  be 
removed  and  disposed  of,  whatever  may  be  its 

The  percentage  of  increase  in  the  expenditures 
of  the  division  is  less  than  the  percentage  of 
increase  in  the  quantity  of  material  to  be  handled. 


The  amount  expended  for  city  labor  in  the 
removal  of  ashes  has  only  increased  four  ])er 
cent,  over  that  spent  last  year,  while  the  num- 
ber of  loads  removed  has  increased  eleven  per 
cent.,  so  that  the  cost  per  load  moved  has  been 
mateiiallv  reduced.  The  same  statement  is  true 
as  to  the  removal  of  offal.  A  new  blacksmith 
shop  has  been  added  to  this  division,  to  accom- 
modate the  northei-n  districts,  and  still  further 
economies  in  this  line  of  work  are  to  be  intic- 

This  division  is  in  pressing  need  of  an  addi- 
tional dumping  scow.  In  case  of  an  accident  to 
either  of  the  two  scows  now  in  use,  which  occa- 
sionally occurs,  serious  embarrassments  result.  A 
tow  boat,  for  the  exclusive  use  of  the  department, 
is  also  desirable.  The  present  wharf  facilities  are 
insufficient,  and  only  one  boat  at  a  time  can  now 
be  docked.  With  further  room,  the  division 
could  repair  its  own  boats,  instead  of  being 
obliged  to  send  theni  to  East  Boston.  It  seems 
desirable  that  some  good  wharf  properties  for  the 
use  of  this  division  should  be  secured  in  East 
Boston  and  South  Boston.  Much  of  the  material 
collected  cannot  be  used  even  for  filling,  •  md 
the  difficulties  of  disposing  of  it  otherwise  than  by 
taking   it   to  sea  are   increasing    every  year. 

The   time  is  fast  coming  when  a  portion   of  the 


matter  collected  will  be  disposed  of  by  some 
incinerating  process;  but  even  then  locations  upon 
the  water  front  will  be  desirable,  for  a  number 
of  reasons.  The  cremation  of  garbage  by  the 
reduction  process  is  in  successful  operation 
in  several  cities,  under  contract  arrangements, 
and  has  just  been  started  in  the  city  of  New 
York.  The  revenue  from  the  sale  of  swill  to 
farmers  has  fallen  off  materially  during  the  last 
year,  owing  to  the  low  price  of  pork,  and 
public  opinion  is  likely  to  demand  before  long 
the  discontinuance  of  this  method  of  disposing 
of  garbage.  The  swill-yard  adjacent  to  the  Mar- 
cella-street  Home  has  long  been  a  nuisance  to 
that  institution  during  the  summer  season,  and 
some  arrangement  for  its  removal  will  shortly  be 


The  work  of  the  street-cleaning  division  has 
been  intelligently  and  efficiently  carried  on  during 
the  year.  With  an  expenditure  substantially  the 
same  as  that  of  last  year,  a  larger  number  of 
miles  of  streets  have  been  cleaned,  and  more 
loads  of  dirt  have  been  removed,  than  ever 
before.  The  important  work  of  the  patrol  or 
push-cart  service,  which  now  employs  forty-six 
men,  has  been  extended  and  further  systematized, 
and   the   men   now   wear  uniform  caps  and  badges. 


A   special   man   has   been   assigned  to  the  duty  oF 
keeping  clean,  after   a   snow-storm,  every  crossmg 
in   the   down-town   district. 


The  work  of  the  bridge  division,  which  has 
charge  of  one  hundred  and  tw^enty-four  bridges 
of  various  descriptions,  has  been  handled  in  a 
careful  manner.  Many  of  these  bridges  are  old, 
and  in  such  a  condition  that  they  require  close 
care  and  intelligent  attention*  to  repairs  to  keep 
them  in  fit  condition  for  use.  The  method  of 
keeping  the  repair  account  has  been  changed  so 
as  to  show  the  cost  of  each  particular  job  done, 
which  had  not  been  shown  heretofore.  Dupli- 
cates of  all  wearing  parts  have  been  provided 
for  immediate  use  in  case  of  emergency.  A  sub- 
stantial saving  has  been  effected  by  having  lum- 
ber delivered  in  the  exact  lengths  required  for 


In  the  ferry  division,  electric  motors  are  being 
substituted  for  tow-horses,  with  entirely  satisfac- 
tory  results,  to  assist  in  pulling  heavy  teams  up 
the  drops,  and  this  will  result  in  substantial  sav- 
ing, as  well  as  improved  service.  Two  ferry-boats 
which  had  not  been  out  of  the  water  for  a  num- 
ber  of  years   have  been  hauled   out   and   metalled.. 

MAYOR'S     ADDKES  a,  83 

Electric  lighting  has  been  extended,  and  a  number 
of  important  minor  improvements  have  been  made. 
Three  new  drops  have  been  put  into  position,  to 
replace  old  ones  pronounced  by  the  city  engi- 
neer to  be  dangerous,  and  have  been  paid  for 
out  of  the  special  loan  of  $500,000  for  improved 
ferry  facilities.  The  ferry-boat  '^Ben  Franklin," 
built  in  1871,  is  fast  reaching  the  limit  of  her 
usefulness,  and  a  new  boat  to  take  her  place 
should  be  contracted  for  at  once;  and  the  feiTy- 
boat  ^^Winthrop,"  built  in  1873,  can  hardly  be 
expected   to   do   service   for   many   years   more. 

The  question  of  providing  additional  ferry  facili- 
ties,   under   the   provisions   of    chapter  J:35  of  the 

acts    of  1895,   has   engaged    the    attention    of  the 


street  department  and  of  the  committee  on  ferries 
of  the  city  council,  but  no  feasible  way  of  pi'o- 
viding  a  ferry  landing  at  a  new  point  on  the 
Boston  side,  within  the  money  available,  seems  yet 
to  have  been  pointed  out.  It  has  been  suggested 
by  the  street  department  that,  in  view  of  the 
serious  difficulties  in  the  way  of  securing  such 
new  landing,  it  might  be  wiser  to  devote  the 
money  available  to  extending  and  improving 
the  present  landings  and  adding  more  slips;  but 
the  best  settlement  of  this  matter,  as  stated  above, 
would  probably  be  the  acquisition  of  the  Kevere 
Beach  railway   ferry-landing. 



The  street-watering  service  has  such  a  bear- 
ing upon  the  comfort  and  health  of  the  public 
that  it  is  important  to  make  it  as  efficient 
and  comprehensive  as  possible.  It  is  extremely 
difficult  to  keep  macadam  streets,  so  largely  used 
in  the  residential  sections  of  the  city,  so  that 
they  are  neither  dusty  nor  muddy.  Upon  windy 
days  in  dry  weather  nothing  short  of  almost 
continuous  watenng  will  prevent  the  dust  from 
flying  in  clouds.  It  is  hoped  that  it '  will  be 
possible  to  expend  a  somewhat  larger  amount  of 
money  during  the  coming  year  upon  the  street- 
watering    service    and   to   make    it    more   efficient. 

An  electric  watering-car  has  recently  been  tried 
by  a  number  of  smaller  cities  in  this  common- 
wealth, with  results  which  are  pronounced  highly 
satisfactory.  There  seems  to  be  no  reason  why 
such  a  service  should  not  be  successfully  in- 
troduced in  this  city,  thereby  secui'ing  at  an 
economical  cost  the  watering  of  many  miles  of 
paved  streets  which  are  not  touched  by  the 
present  service.  Hydrants  for  the  replenishing  of 
these  watering-cars  are  placed  between  the  street- 
railway  tracks,  at  intervals  of  about  one-half  mile, 
and  the  tank  can  be  filled  without  requiring  a 
longer  stoppage  than  is  often  necessary  for  taking 


on  passengers.  A  few  months  ago,  several  miles 
of  the  West  End  street-railway  track  were  equipped 
with  hydrants  for  a  test,  and  a  watering-car  was 
operated  in  a  satisfactory  manner;  but  the  trial 
was  discontinued  owing  to  doubts  entertained  by 
the  management  of  the  company  as  to  its  right, 
under  its  charter,  to  operate  such  cars.  The 
arrangement  proposed  is  that  a  contract  for  the 
watering  of  certain  streets  should  be  made  be- 
tween the  city  and  a  company  controlling  these 
watering-cars,  such  company  then  contracting  with 
the  street-railway  company  for  the  furnishing  of 
current  and  for  track  rights.  There  seems  to  be 
no  reason  why  the  West  End  company  should  not 
be  authorized,  at  the  request  of  the  municipality, 
to  perform  its  part  of  this  service,  and  a  special 
act  for  this  purpose  will  be  asked  for  at  the 
coming  session  of  the  legislature.  The  service 
should  be  made  a  general  one.  If  it  had  to 
be  paid  for  out  of  the  general  taxes  of  the  city  it 
would  probably  have  to  be  too  limited,  and  there- 
fore it  would  seem  to  be  desirable  to  assess  the 
expense  upon  the  abutters  on  paved  streets  so 


The  only  franchise  granted  to  a  new  company 
during  the  past  year  has  been  that  giving  to 
the   Boston   Pneumatic  Transit    Company  the  right 


to  lay  atid  maintain  pneumatic  tubes  in  certain 
streets,  for  the  transmission  of  mail  matter  and 
small  articles  of  merchandise.  An  executive  con- 
tract was  made  in  connection  with  the  grant  of 
this  franchise,  which  establishes,  for  the  first  time 
in  this  city,  I  believe,  the  principle  of  payment 
for  the  use  of  streets  by  private  corporations. 
Beginning  with  a  smaller  return,  this  company  is 
finally  to  pay  two  and  one-half  per  cent,  of  its 
annual  gross  earnings  into  the  treasury  of  the 
city.  While  the  amount  of  revenue  to  be  received 
in  this  particular  case  is  a  comparatively  small 
one,  owing  to  the  somewhat  novel  character  of 
the  enterprise  and  the  commercial  uncertainty 
attending  it,  a  precedent  of  much  importance  has 
been  established.  Application  will  be  made  to 
this  legislature  for  the  passage  of  some  act  for- 
mally giving  to  the  city  government  the  right  to 
make  arrangements  of  this  character  exacting  a 
pecuniary  return  for  the  grant  of  rights  in  the 
public   streets. 


The  street  commissioners  have  for  some  years 
favored  the  cutting  down  of  the  present  grade 
of  Bowdoin  street  so  as  to  make  it  a  prac- 
ticable thoroughfare,  at  least  for  carriages.  This 
plan  was  recently  brought  forward  in  connec- 
tion   with     the     completion     of    the     state     house 

MAYOR'S     ADI)UE.<^Sv  87 

grounds,  but  it  was  found  that  the  requirements 
-of  these  grounds  and  their  approaches  which  were 
deemed  by  the  state  house  commissioners  to  be 
necessary,  stood  in  the  way  of  any  adequate 
loweriug  of  the  grade  of  this  street,  and  also 
of  its  widening  on  the  side  adjacent  to  the 
state  house.  It  is  to  be  regretted  that  the 
•opportunity  of  making  a  valuable  thoi'oughfare, 
which  would  be  a  benefit  to  the  city,  thus 
seems  to  be  shut  off.  I  desire  to  suggest,  as  a 
partial  substitute,  the  reduction  of  the  present 
grade  of  Somerset  street,  between  Beacon  and 
Howard  streets,  to  about  six  feet  in  one  hundred, 
and  the  extension  of  this  street  to  Court  street. 
A  practicable  route  for  carriages  across  Beacon 
Tiill  by  way  of  Park  street  would  thus  be 
opened.  The  grade  damages  ought  not  to  be 
serious,  and  such  a  change  of  gi'ade  would  inci- 
•dentally  greatly  benefit  the  new  court  house. 
The  grade  of  Ashburton  place  would  have  to  be 
rsomewhat  changed   at   the   same   time. 

A  plan  has  been  prepared  by  the  street  commis- 
sioners, at  my  request,  for  extending  Swett  street 
from  Andrews  square,  at  a  width  of  seventy  feet, 
in  the  line  of  Preble,  Mercer,  and  Burnham 
streets,  to  East  Ninth  street.  The  length  of  this 
extension  and  widening  would  be  about  half  a 
mile,  and  a  new   and  important  thoroughfare   from 

88  MAYOR'S    ADDBB88. 

the  South  End  to  Sonth  Boston,  over  which 
electric  cars  would  doubtless  be  run,  would 
thus  be  opened.  The  section  of  this  extension 
between  East  Ninth  street  and  the  Old  Colony 
railroad  would,  if  the  plan  for  relocating  the 
Old  Colony  tracks  above  mentioned  is  carried 
out,  connect  the  end  of  the  Strandway  with  the 
present  roadbed  of  the  Old  Colony,  which  would 
then   become   a   parkway. 

The  street  commissioners  are  ready  to  widen 
Canal  and  Haverhill  streets,  on  the  sides  next  to 
the  old  Boston  and  Maine  terminal,  to  the  width 
of  seventy  feet,  as  soon  as  the  transit  commission 
is  prepared  to  allow  them  to  do  so,  and  this  im- 
portant improvement  will  shortly  be  made. 


The  work  of  mapping  out  undeveloped  territory 
in  the  outlying  wards  of  the  city,  under  chapter 
323  of  the  acts  of  1891  and  amendments  thereto, 
has  been  earned  forward  under  the  direction  of 
the  board  of  street  commissioners.  During  the 
last  year  42  sectional  plans  (7  in  Roxbury,  15 
in  West  Koxbury,  15  in  Dorchester  and  the  South 
Bay,  and  5  in  Brighton)  have  been  filed  in  the 
office  of  the  city  engineer,  and  some  20  addi- 
tional sections,  now  in  progress,  will  be  ready 
for   filing   during   the   present   month. 


The  long-promised  widening  of  Clinton  street 
has  been  completed,  and  an  important  improve- 
ment has  also  been  made  in  St,  Martin  street, 
Chariest  own,  by  the  construction  of  a  much-needed 
flight  of  steps.  The  streets  around  the  new  union 
station  —  Dorchester  avenue,  the  extension  of  Sum- 
mer street,  and  new  Cove  street  —  have  also  been 
planned,  and  the  widening  of  Congress  street  to 
80  feet,  from  Atlantic  avenue  to  Fort  Point  chan- 
nel, has  been  ordered.  Plans  for  the  widening  of 
Tremont  street,  Brighton,  from  Oak  square  to  the 
IS^ewton  line,  to  the  width  of  70  feet,  have  been 
completed,  and  this  desirable  improvement  should 
be   made  as   soon   as   possible. 

Under  the  provisions  of  chapter  323  of  the  acts 
of  1891,  the  city  has  the  right  to  borrow  not  ex- 
ceeding three  million  dollars,  in  excess  of  sinking 
funds,  for  the  purpose  of  constructing  new  streets 
and  sewers,  the  cost  of  which  is  to  be  repaid  by 
special  assessments  upon  abutters.  The  privilege  of 
securing  the  building  of  streets  and  sewers  under 
the  provisions  of  this  act  has  been  so  largely  made 
use  of  by  the  owners  oC  real  estate  in  process  of 
development,  that  the  above  limit  has  now  nearly 
been  reached.  Bonds  to  the  amount  of  $3,350,- 
000  have  already  been  issued,  and  only  $150,000 
more  are  now  available,  and  the  resources  for 
this    year    will   be    far     more    than    exhausted    for 

<)0  MAYOR'S     ADDRESS. 

construction  work  on  streets  and  sewers  already 
ordered  and  urgently  demanded.  Application 
will  be  made  to  the  legislature  for  the  passage 
of  an  act  raising  the  present  limit  of  the 
amount  of  money  which  can  be  borrowed,  with 
the  provision  that  any  excess  above  such  limit 
shall  be  expended  solely  in  such  a  manner  that 
it  will  be  fully  repaid  by  the  assessments.  As 
the  city  will  thus  merely  be  lending  its  credit 
upon  good  security,  there  is  no  reason  why  it 
should  not  assist  in  this  manner,  within  any 
reasonable  financial  bounds,  in  the  development 
of   taxable   property. 


Good  progress  has  been  made  upon  the  first 
contract,  covering  the  construction  of  ten  masonry 
piei's,  on  the  new  bridge  to  Charlestown,  and 
the  city  engineer  has  recently  nearly  completed 
the  plans  for  the  masonry  and  approaches  on  the 
Charlestown  end.  The  piers  now  in  process  of 
construction'  should  be  completed  next  summer, 
and  it  is  expected  that  the  bridge  will  be  open 
by  a  year  from  that  time.  The  estimated  cost 
is  about  $1,250,000,  of  which  $750,000  was 
appropriated  by  the  city  council  inside  the  debt 
limit,  and  the  remaining  $500,000  is  to  be  pro- 
vided   by   loan    outside   of   the     debt    limit,   upon 


the  requisition  of  the  Boston  transit  commission. 
Charlestown  street  should  be  widened  from  the  end 
of  the  bridge  to  Haymarket  square,  to  pi'ovide  an 
adequate  approach;  and  the  necessary  expenditure 
for  this  purpose  can,  in  the  opinion  of  the  cor-^ 
poration  counsel,  be  provided  for  by  the  transit 
commission,  under  its  powers. 


The  legislature  of  last  year  passed  an  <ict  pro- 
viding, in  case  of  favorable  action  by  the  i^espective 
city  councils  of  Boston  and  Cambridge,  for  the 
construction  of  a  bridge  across  the  Charles  river  in 
the  line  of  Magazine  street  extended,  the  expense 
of  its  construction,  not  exceeding  $400,000,  to  be 
met  by  loan,  issued  by  both  cities  outside  of  the 
debt  limit,  each  bearing  one-half  of  the  cost.  I 
have  declined  to  take  any  steps  under  this  act, 
partly  because  of  a  general  objection  to  further 
loans  for  purposes  of  this  character  outside  of  the 
debt  limit,  and  partly  because  it  seemed  to  me  that, 
although  there  might  be  occasion  for  the  building 
of  such  a  bridge,  this  city  would  derive  no  such 
benefit  from  it  as  to  make  it  just  for  it  to  bear  half 
of  the  expense.  A  bridge  at  this  point  would  be 
used  mainly  for  the  purpose  of  a  county  thorough- 
fare, and  the  two  counties  most   concerned   should 


case  and  the  large  amount  of  money  involved,  a 
very  careful  study  of  all  matters  bearing  upon  it  is 
being  made,  and  special  counsel  and  experts  have 
been  retained  for  the  protection  of  the  inteiests 
of  the  city. 

Basin  5  was  taken  from  the  city  by*  the  met- 
ropolitan water  board  just  one  year  ago.  The 
total  expenditures  of  the  city  upon  this  work^ 
amounting  to  $1,118,975.74,  have  now  been  re- 
paid  by    the   state. 

Under  the  provisions  of  chapter  488  of  the 
acts  of  1895,  surplus  income  from  water  rates,  in 
excess  of  interest  and  sinking-fund  requirements 
and  maintenance  expenses,  now  goes  into  the 
general  cash  balance  of  the  city  treasury.  At  the 
beginning  of  the  cmrent  financial  year  the  sum 
so  received  amounted  to  $109,036.68.  Of  this 
amount  $74,000  was  appropriated  by  the  city 
council,  in  the  month  of  November,  to  meet  certain 
liabilities  incurred  by  the  school  conunittee  in 
excess  of  its  appropriation,  which  the  city  is  by 
law  obliged  to  pay;  and  the  auditor  and  myself 
were  obliged  to  transfer  the  balance  of  this  sum 
to  meet  bills  for  repairs  in  school  buildings,  also 
incurred    in   excess   of    the   appropriation    therefor. 

It  has  been  thought  advisable  to  restore  the 
charges  formerly  made  by  the  water  department 
against  other  departments  for  water  used  by  them,. 


SO  as  to  credit  the  water  department,  as  a 
separate  account,  with  the  full  revenues  to  which 
it  is  entitled.  As  these  charges  were  not  included 
in  making  the  appropriations  for  the  depart- 
ments, transfers  to  some  department  appropria- 
tions will  have  to  be  made  to  provide  for  meeting 

The  water  department  has  been  managed  in  a 
careful  and  economical  manner,  and  many  deisira- 
ble  improvements  in  business  methods  have  been 
introduce^.  The  maintenance  appropriation  is 
$50,000  less  than  that  of  last  year,  but  it  will 
not  be  exceeded. 


During  the  year  a  committee  of  the  city  council 
visited  a  number  of  the  large  cities  of  the  middle 
west  to  investigate  the  use  of  pipe-lines,  running 
from  the  water  front,  for  fire-extinguishing  pur- 
poses. Provision  has  now  been  made  by  the 
city  council  for  constructing,  in  the  down-town 
district,  about  a  mile  and  a  half  of  pipe-line, 
enabling  the  fire-boat  to  throw  salt  water  upon 
fires,  the  establishment  of  which  service  the  fire 
commissioner  has  for  some  time  strongly  rec- 
ommended. A  contract  for  a  new  fire-boat, 
of  such  light  draught  that  she  will  be  able  to 
reach   a   large    stretch    of   water   front    which    the 


present  fire-boat  cannot  reach,  will  very  shortly  be 
placed.  After  careful  inquiry  into  the  subject,  the 
fire  commissioner  has,  with  my  approval,  given  an 
order  for  a  powerful  self-propelling  fire-engine, 
throwing  a  very  much  larger  stream  of  water 
than  ordinary  fire-engines,  to  respond  to  second 
alarms,  especially  in  the  down-town  district,  and 
this  will  be  in  service  within  a  month  or  two. 
Engines  of  this  type  have  been  greatly  improved 
within  recent  years,  and  seem  to  offer  important 
advantages,  if  they  are  found  adapted  to  our  con- 
ditions in  this  city.  The  fire-alarm  branch  has 
been  thoroughly  investigated,  and  a  number  of 
desirable    improvements   have   been    introduced. 

The  city  has  been  fortunate  in  not  having  had 
any  very  serious  conflagration  during  the  year. 
The  total  losses  by  fire  within  its  limits  for  the 
first  nine  months  of  the  current  financial  year 
amounted  to  $1,006,766,  of  which  sum  $440,877 
represented  losses  on  buildings  and  $365,889 
losses  on  their  contents.  It  should  be  gratifying 
to  our  citizens  to  know  that  Boston  now  stands 
high  up  among  the  large  cities  of  this  country  in 
the  smallness  of  the  percentage  of  fire  losses 
relative   to   the   total   valuation   of  property. 

The  system  of  allowing  each  member  of  the 
fire  department  one  day  in  eight  off*  duty,  the 
adoption  of  which    was  made   possible  by  a  special 


appropriation    made   by   the   city  council,  has  been 
put  into   effect,   and  is   working   successfully. 


During  the  past  year  the  commercial  organiza- 
tions of  Boston  have  been  actively  interested  in 
securing  an  adequate  appropriation  from  Congress 
for  making  the  improvements  in  our  harbor 
necessary  to  adapt  it  to  the  requirements  of 
modern  steamships.  It  is  gratifying  to  be  able 
to  state  that  provision  has  been  made  for  secur- 
ing, during  the  coming  spring  and  summer,  an 
accurate  survey  of  the  present  channel  from 
Broad  sound,  showing  just  what  work  is  re- 
quired to  make  it  suited  to  accommodate  the 
largest  vessels;  and  the  war  department  has  just 
issued  an  advertisement  inviting  contractors  to 
submit  bids  for  the  whole  work,  on  a  continuing 
contract,  of  deepening  the  present  ship  channel 
to  twenty-seven  feet  at  low  tide,  and  widening 
it  to  one  thousand  feet.  Boston  harbor  will  thus 
be  provided,  within  a  few"  years,  with  a  channel 
safe  and  sufficient  for  the  largest  vessels,  to  be 
supjjlemented  later  by  an  additional  channel  direct 
from   Broad   sound. 

The  commonwealth  has  also  shown  its  interest 
in  the  improvement  of  our  harbor  by  appropriat- 
ing   the   sum   of   $150,000,   to     be    spent    by    the 


board  oi  harbor  and  land  commissioners  in: 
dredging  inside  of  the  termination  of  the  main 
ship  channel.  A  large  part  of  this  work  has 
already  been  completed,  and  the  balance  will  be 
finished  by  next  summer.  The  work  of  adapting 
Boston  harbor  in  all  respects  to  the  requirements 
of  modern  commerce  is  one  of  such  importance  to 
the  whole  state,  that  it  would,  in  my  opinion,  be 
desirable  for  the  commonwealth  to  extend  the 
liberal  policy  initiated  by  this  appropriation,  and 
to  provide  any  reasonable  sums  required  to  sup- 
plement the  improvements  now  undertaken  by  the 
federal  government. 


The  amount  of  pi-operty  in  Boston  and  its 
suburbs  exposed  to  the  attack  of  ships  of  war 
armed  with  modern  long-range  guns  is  so  enor- 
mous, that,  however  remote  may  be  the  prospects 
of  such  attack,  some  proper  harbor  defences 
should  be  provided,  if  only  by  way  of  insurance 
against  possible  dangers.  Fortunately  our  harbor 
is  capable  of  being  almost  absolutely  protected 
by  batteries  of  modern  guns,  located  at  suitable 
points  upon  the  headlands  and  islands.  A  com- 
plete and  comprehensive  scheme  for  the  fortifi- 
cation of  the  harbor  was  prepared  by  the  war 
department     some     time     since,     and    within     the^ 


present  year  guns  will  be  placed  in  position  upon 
several  of  the  most  important  points,  affording  a 
strong  line  of  defence.  In  addition  to  the  sixteen 
mortars  which  have  for  some  time  been  in  place 
and  under  garrison  at  Winthrop  Highlands,  three 
ten-inch  gnus  have  just  arrived  at  Fort  Warren 
and  are  ready  to  be  mounted  ;  during  the  coming 
year  five  ten-inch  guns,  for  which  the  platforms 
are  already  substantially  finished,  will  be  in  posi- 
tion on  Long  island  head,  and  it  is  also  expected 
that  a  battery  of  eight  mortars  will  be  erected 
either   on  Deer  island  or  on  Peddock's  island. 

Four     years     ago     the    secretary    of    war     ad- 
dressed  a  communication     to   the   mayor    of    Bos- 
ton,    asking     the    city     to     give    to    the    general 
government    certain    locations     for   batteries    upon 
Deer     island,      containing     about       thirtj'      acres. 
No    action    was    taken    upon    this   communication, 
and    a    renewed    application    to     the    same    effect 
has  just  been  addressed  to  me  on  behalf  of  the  war 
department.     These   locations  would  be  taken  from 
the  city  only  as  required  for  the  work  of  fortifica- 
tion ;   and   only   one  tract,  containing  about  fifteen 
acres,  to   be    used   for  a  mortar  battery,  would    be 
required   at   present.      As    the    government   has    a 
right    to    take    land    for   fortifications   by   eminent 
domain,   the    only    question     is    whether    the    city 
will    transfer    the     title    without    payment.      It    is 


urged  on  behalf  of  the  war  department  that 
the  transfer  of  the  use  of  Castle  island  to  the 
city  should  be  considered  as  an  offset  to  the 
transfer  of  these  battery  sites.  It  should  cer- 
tainly be  gratifying  to  our  citizens  to  feel  that 
they  will  not  be  left  much  longer  absolutely 
without  defence  against  a  naval  attack,  and  I 
recommend  the  surrender  of  the  locations  re- 
quested,   without   asking   for   compensation. 


It  is  of  great  importance,  in  order  that  work 
may  be  intelligently  laid  out  and  planned,  that  the 
general  loan  orders  should  be  passed  earlier  in 
the  municipal  year  than  has  generally  been  the 
practice.  Last  year  the  first  general  loan  order  was 
not  passed  until  the  month  of  July.  The  important 
work  of  the  street  department  can  only  be  prose- 
cuted to  advantage  when  financial  calculations  can 
be  made  in  advance,  and  I  trust  that  the  city 
council  will  take  uj)  this  important  matter  early  in 
the  year,  and  authorize  at  least  the  greater  part 
of  the    loans   which    the   city   is   to    issue. 

One  of  the  great  difficulties  now  met  with  in  the 
proper  management  of  our  municipal  finances  is  that 
of  obtaining  the  passage  by  the  city  council,  at  the 
proper  time,  of  loan  appropriations  for  purposes 
benefiting  the   city  as  a   whole,  and  not  of  special 

MAYOirS     ADDRESS.  101 

interest  to  any  particular  locality.  The  pressure 
for  loan  appi'opriations  for  local  improvements, 
many  of  them  desirable  and  important  ones,  is  so 
great,  that  it  is  only  with  much  difficulty  and  con- 
siderable uncertainty  that  such  appropriations  for 
necessary  general  purposes  can  be  obtained.  The 
general  necessities  of  the  city  should  always  be 
given  precedence  over  purely  local  wants  ;  but 
at  the  present  time  it  is  always  difficult,  and  some- 
times impossible,  to  accomplish  this  result.  The 
requirement  of  a  two-thirds  vote  of  all  the  mem- 
bers of  each  branch  of  the  city  council  in  order  to 
pass  a  loan,  makes  it  very  difficult  to  obtain  loan 
appropriations  for  urgent  general  purposes. 

While  the  borrowing  of  money  directly  for  cur- 
rent expenditures  has  been  stopped,  a  financial 
piactice  has  prevailed  to  some  extent  in  this  city 
which  has  indirectly  involved  the  same  violation 
of  the  principles  of  sound  finance.  It  is  obvious 
that  if  money  is  boiTowed  for  the  term  of  twenty 
years,  and  expended  upon  a  work  of  construction 
which  will  only  last  ten  yeai's,  and  will  have  to 
be  renewed  at  the  end  of  that  time,  the  power 
of  borrowing  is  indirectly  used  to  meet  current 
demands.  For  example,  if  the  sum  of  $100,000 
is  borrowed  this  year,  for  a  term  of  twenty  years, 
for  the  reconstruction  of  street  surfaces  which 
will  have   to    be  renewed  at   the  end  of  ten   years, 

102  MAYOR'S     ADDRESS. 

out  of  the  proceeds  of  another  twenty-year 
loan,  the  city  will  still  owe,  when  the  jfii'st  loan 
is  paid  oflF  at  maturity,  the  half  of  the  second 
loan  not  covered  by  the  sinking  fund  provided  for 
its  redemption.  Thus  after  the  street  surface  has 
been  renewed  for  the  third  time,  the  city  will 
still  be  paying,  for  the  further  period  of  ten  years, 
a   part   of  the   expense   of  the   second   renewal. 

The  only  legitimate  purpose  of  a  loan  is  to 
distribute  over  a  term  of  years  the  cost  of 
some  construction  which  will  last  at  least  for  the 
same  period,  or  of  some  work  which  has  to  be 
done  only  once  during  such  period.  Sufficient 
attention  does  not  seem  to  have  been  paid  in 
the  past  to  this  essential  principle  of  sound 
municipal  finance.  In  order  to  conform  to  this 
principle,  the  term  of  the  loan  passed  last 
year  providing  for  the  street  department  ward 
improvement  appropriation  was  reduced  from 
twenty  years  to  ten.  It  would  be  advisable  to 
have  some  official  estim^ite  made  by  the  city 
engineer  of  the  probable  life  of  every  separate 
piece  of  construction  work  provided  for  by  loan, 
and  to  have  the  term  of  the  loan  limited  to  this 
period ;  while  there  are  some  complications  in 
the  way  of  following  this  procedure  in  the  case 
of  every  item  in  a  loan  appropriation,  I  shall 
endeavor  to   inaugurate  such   a   system. 

MAYOR'S     ADDRESS.  103 

During  the  past  year  the  idea  of  materially 
shortening  the  term  of  any  additional  loans  out- 
side of  the  debt  limit,  in  order  to  avoid  further 
mortgaging  of  the  resources  of  the  city  for  a 
"long  term  of  years,  was  presented  by  me  in  con- 
nection with  the  financial  provisions  for  meeting 
the  expenses  imposed  upon  the  city  for  making 
the  street  changes  required  in  the  neighborhood 
of  the  new  southern  union  station.     Under  the  act 


providing  for  this  station  the  bonds  issued  to  pro- 
vide the  means  to  meet  the  portion  of  the  expense 
borne  by  the  city  cannot  run  for  a  longer  term  than 
five  years.  In  this  manner  the  expense  of  securing 
this  great  improvement,  the  whole  of  which  will 
directly  or  indirectly  come  back  to  the  city,  is  dis- 
tributed over  the  next  few  years,  and  there  will  be 
iio  permanent  increase  on  this  account  in  the  in- 
debtedness of  the  city  outside  of  the  debt  limit.  I 
believe  that  the  example  thus  set  should  be  followed 
in  the  case  of  any  other  loans  which  it  may  in  the 
future  be  found  necessary  to  issue  outside  of  the 
debt  limit,  for  improvements  which  are  not  expected 
to  bring  in  a  direct  revenue  to  meet  their  cost. 

In  view  of  the  fact  that  the  securities  held  in  the 
sinking  funds  now  consist  wholly  of  the  bonds  of 
the  city  itself,  it  would  tend  to  simplify  our  debt 
statements,  and  would  show  more  truly  the  financial 
position   of  the  city,   if  all  of  our   bonds   so   held 

104  MAYOR'S     ADDRESS. 

could  be  cancelled,  making  the  gross  debt  and  the 
net  debt  the  same.  A  bill  for  accomplishing  this 
object  has  been  prepared  by  the  corporation  counsel, 
and  the  practicability  and  desirability  of  making  this 
change,  or  otherwise  altering  the  present  sinking- 
fund  system,  has  been  referred  to  the  Merchants' 
Municipal  Committee. 

If  the  valuation  of  our  taxable  property  con- 
tinues to  increase  at  the  same  ratio  as  it  has 
for  the  last  few  years,  the  city  will  be  able 
at  the  end  of  five  years  to  raise  annually,  under 
the  $9  tax  limit,  some  $1,200,000  more  than  at 
present.  I  believe  that  we  should  adopt  the  finan- 
cial policy  of  trying  to  keep  the  expenditures 
of  most  of  the  departments  as  nearly  at  their 
present  figure  as  possible,  in  order  that  the 
greater  part  of  this  increase  in  current  revenue 
may  be  given  to  the  street  department,  where  it 
is  most  urgently  needed,  and  will  be  productive 
of  the  greatest   public   benefits. 

At  present  there  is  no  central  supervision  of 
the  methods  of  accounting  and  book-keeping  in 
use  by  the  different  departments  of  the  city,  nor 
is  there  any  regular  examination  of  accounts  for 
the  pui'pose  of  verification,  except  the  annual 
examination  of  the  accounts  of  the  treasurer  and 
collector  made  under  the  direction  of  the  city 
council.       I   believe    that    the    auditor    should    be 


given  the  additional  duty  of  supervising  the  keep- 
ing of  all  the  books  and  accounts  of  the  city, 
and  causing  them  to  be  examined  and  verified 
at  least  as  often  as  once  a  year.  In  short,  the 
auditing  department  should  be  made  a  central 
accounting  office,  with  comprehensive  powers  and 


The  uninterrupted  operation  of  the  AVest  End 
Street  Railway  system  is  a  matter  of  vital  im- 
portance to  the  public,  and  they  are  therefore 
interested  in  having  the  relations  between  this 
great  corporation  and  its  employees  placed  upon 
a  stable  and  satisfactory  basis.  It  seems  to  me 
that  such  stability  can  best  be  secured  by  the 
recognition,  by  the  management  of  the  company, 
of  any  labor  organization,  properly  organized  and 
conducted,  of  which  the  great  mass  of  its 
employees  become  members,  and  by  the  renewal 
of  some  such  agreement  as  was  formerly  in  force 
between  the  company  and  its  employees,  defining 
the  conditions  of  employment,  and  providing  for 
the   redress   of  cases   of  injustice   to   individuals. 


During  the  last  year  a  much-needed  loan  ap- 
propriation, amounting  to  $10',000,  was  made  for 
the    improvement    of   Mt.    Hope   cemetery,    and    a 


106  MAYOR'S     ADDRESS. 

further  and  larger  sum  should  be  provided  for 
this  purpose  during  the  coming  year.  For  busi- 
ness reasons,  if  for  no  others,  this  cemetery 
should  be  reasonably  equipped,  to  compete,  in  the 
attractions  offered,  with  private  cemeteries.  I  am 
satisfied  that  the  investment  of  a  further  reason- 
able sum  of  money  in  this  cemetery  will  bring 
a  considerable  return  to  the  city.  The  want  of 
a  chapel  is  now  greatly  felt,  and  this  at  least 
should  be  provided  as  soon  as  possible.  Under 
the  present  board  of  trustees  the  cemetery  has 
been  carefully  and  conscientiously  managed,  and 
good  results  have  been  secured.  It  would  in  my 
opinion  be  very  desirable  to  place  this  board  upon 
a  more  stable  basis  than  is  possible  under  the 
present   annual   appointment  of  all  its  members. 


Boston  is  very  deficient  in  respect  to  the  pro- 
vision of  public  lavatories,  and  it  is  highly  impor- 
tant that  steps  should  be  taken  as  soon  as  possible 
to  meet  the  wants  of  the  people  in  this  direction.  In 
London,  and  in  some  of  the  cities  of  continental 
Europe,  underground  lavatories,  placed  at  points 
where  there  is  the  greatest  confluence  of  travel, 
have  been  conducted  with  marked  success,  and 
by  a  small  charge  for  the  use  of  some  of  the 
privileges   furnished    have    even    been    made   more 

MAYOR'S     ADDRESS.  107 

than  self-supporting.  It  was  not  deemed  practi- 
cable to  make  provision  for  such  lavatories  in 
connection  with  the  stations  on  the  line  of  the  sub- 
w^ay,  and  it  is  necessary  that  some  proper  accom- 
modations of  this  character  should  be  supplied  in 
their  immediate  vicinity.  I  recommend  an  appro- 
priation sufficient  to  enable  one  of  these  under- 
ground lavatories  to  be  placed  at  some  suitable 
point,  in  order  that  this  plan  of  construction  may 
receive  a   practical   trial. 


I  believe  that  the  city  could, "*  with  adyantage, 
establish  and  maintain,  under  the  board  of  health, 
a  fully  equipped  municipal  laboratory,  for  making 
the  tests  of  various  articles  necessary  to  determine 
whether  they  conform  to  the  requirements  of  the 
laws,  and  for  deteiinining,  by  chemical  analysis, 
the  quality,  and  freedom  from  adulteration,  of  the 
large  amount  of  food  and  supplies  of  all  sorts 
purchased  by  the  city  for  the  use  of  the  vari- 
ous departments.  Modern  science  has  placed 
at  our  command  the  means  for  readily  secur- 
ing exact  information  as  to  the  composition  of 
almost  every  article;  and  the  systematic  exami- 
nation and  testing,  by  a  single  officer,  of  every- 
thing used  by  the  city,  together  with  the  making 
of   such  official   analyses    as   might   seem   desirable 

108  MAYOR'S     ADDRESS. 

for  the  protection  of  our  people  in  their  purchases 
of  common  articles  of  consumption  or  use,  would 
be  productive  of  valuable  results.  A  considerable 
amount  of  the  work  which  would  come  under  such 
a  laboratory  is  already  done  by  or  for  the  city; 
but  it  seems  to  ipe  that  there  would  be  impor- 
tant advantages  in  consolidating  and  systematizing 
this  work,  and  affording  facilities  for  its  extension. 


The  subject  of  securing  the  housing  of  its 
people  in  suitable  buildings,  and  preventing  the 
erection  or  continuance  of  unsanitary  or  improper 
tenements,  is  one  which  should  engage  the  atten- 
tion of  every  enlightened  municipality.  A  law 
has  recently  been  enacted  by  the  state  of  Xew 
York  which  gives  the  local  board  of  health  power 
to  condemn  and  destroy  any  unsanitary  buildings, 
leaving  the  land  in  the  hands  of  the  owner,  and 
giving  him  compensation  only  for  the  value  of 
the  buildings.  This  statutory  provision  seems  to 
me  an  important  and  valuable  one,  as  it  enables 
action  to  be  taken  in  cases  where  the  expense 
of  condemning  both  land  and  buildings  would 
be  prohibitory.  I  shall  endeavor  to  secure  the 
passage  of  a  similar  measure  at  the  present  session 
of  our  legislature. 

MAYOR'S     ADDRESS.  109 


During  the  last  year  the  city  treasurer  received 
a  bequest  of  $50,000  under  the  will  of  George 
L.  Randidge,  the  income  of  which  sum  is  to  be 
used  for  the  purpose  of  "  affording  to  the  children 
of  the  poor  of  the  city,  of  all  religious  denomi- 
nations, the  pleasure  of  one  or  more  excursions 
during  the  months  of  July  and  August  in  each 
year."  One  year's  income  of  this  bequest,  amount- 
ing to  the  sum  of  $2,000,  will  be  available  next 
summer,  and  every  effort  will  be  made  to  expend 
it  in  such  a  manner  as  to  give  the  greatest 
amount  of  enjoyment,  in  conformity  with  the 
beneficent  intentions  of  the  donor.  I  am  glad 
to  take  this  opi)ortunity  to  express  the  city's 
appreciation  of  this  unusual  but  admirable  bequest, 
and  the  hope  that  the  worthy  example  set  by 
Mr.  Kandidge  may  be  followed  by  others.  The 
growing  recognition  of  the  idea  that  a  municipality 
can  properly  engage  in  efforts  to  promote  the 
social  well-being  and  enjoyment  of  its  citizens, 
particularly  of  children,  will  be  promoted  by  this 
gift,  and  the  name  of  the  donor  will  be  perpet- 
uated  in   kindly   remembrance. 



No  further  steps  have  been  taken  during  the 
year  in  regard  to  the  application  of  the  Franklin 
fund,  now  amounting  to  over  $350,000,  owing 
to  the  doubt  which  exists  as  to  who  aye 
entitled  to  act  as  the  trustees  of  the  fund  at 
the  present  time.  A  petition  has  been  presented 
to  the  Pi'obate  Court  to  have  this  question  de- 
termined, and  the  case  has  just  been  argued,  but 
it  may  have  to  be  taken  to  the  Supreme  Judi- 
cial Court  for  final  determination.  The  imique 
and  interesting  character  of  this  bequest,  as  well 
as  its  substantial  amount,  makes  it  of  great  public 
interest  that  it  should  be  applied  in  general  har- 
mony with  the  purposes  of  Franklin,  and  in  such 
a  manner  as  to  constitute  a  worthy  monument 
to   his   memory. 


Early  in  the  year  the  sum  of  $10,000,  from 
the  income  of  the  Phillips  fund,  was  appropriated 
upon  my  recommendation  for  the  execution  of  a 
proper  statue  of  Colonel  Cass,  to  take  the  place 
of  the  present  unsatisfactory  stone  figure  on  the 
Public  Garden.  The  commission  was  given  by 
me  to  a  young  American  sculptor  now  studying 
in  Paris,  who  had  satisfactorily  executed  a  bust 
of   Dr.    Holmes    for    the    public    library.      In    the 


last  loan  bill  I  approved  an  item  of  $12,100  for 
the  long-postponed  statue  of  General  Joseph 
Warren.  The  Warren  Monument  Association  of 
Roxbury,  formed  many  years  since  for  the  pur- 
pose of  securing  the  erection  of  this  monu- 
ment, has  requested  me  to  postpone  for  a  few 
months  the  placing  of  the  commission,  in  order 
that  the  appropriation  may  be  added  to,  for  the 
purpose  of  securing  a  more  adequate  memorial,  by 
contributions  which  it  is  expected  to  raise  from 
private  individuals. 


A  plan  for  the  improving  of  Copley  square  — 
which,  in  spite  of  the  diyersity  in  the  architecture 
of  the  buildings  surrounding  it,  undoubtedly  ranks 
as  the  finest  square  in  the  city  —  was  prepared 
some  time  since  under  a  competition  instituted  by 
the  Boston  Society  of  Architects.  A  committee  of 
that  body  has  recently  brought  this  matter  to  my 
attention;  the  carrying  out  of  some  such  plan 
would  immensely  benefit  the  appearance  of  this 
square,  and  would  be,  from  an  artistic  standpoint, 
one  of  the  best  improvements  which  the  city  could 
make.  The  expense  of  such  a  scheme  would  not 
be  great,  considering  the  valuable  result  that  would 
be  secured. 

112  MAYOR'S     ADDRESS. 


Another  year  has  passed  without  the  provision 
of  a  rifle  range  for  the  use  of  the  militia,  as  re- 
quired by  law,  in  spite  of  the  fact  that  the  selection 
of  a  suitable  site  for  this  purpose  has  received  a 
good  deal  of  attention  at  the  hands  of  the  board 
of  aldermen.  There  seem  to  be  very  few  available 
tracts  of  land  of  the  size  required  and  suitably 
located,  and  after  a  good  deal  of  investigation  of 
the  subject  there  seems  to  be  general  acquiescence 
in  the  conclusion  that  a  suitable  tract  cannot  be 
secured  at  a  fair  price,  unless  the  city  is  given  the 
right  to  take  the  land  by  right  of  eminent  do- 
main. An  application  will  be  made  to  the  legis- 
lature for  the  passage  of  an  act  for  this  purpose. 

After  careful  enquiry  into  the  present  accommo- 
dations of  the  two  new  armories  and  the  need 
of  increasing  them,  I  gave  my  approval  to  a  loan 
appropriation  of  $125,000  for  their  improvement, 
after  arriving  at  an  understanding  with  the  state 
armory  commissioners  as  to  the  manner  in  which 
the  money  should  be  expended.  It  seems  to  me 
that  the  interest  taken  by  the  membei'S  of  the 
militia  in  their  work,  and  the  time  and  money 
which  they  contribute  to  it,  makes  it  incumbent 
upon  the  city  to  furnish  all  reasonable  accom- 
modations  in    the   armories. 

MAYOR'S     ADDRESS.  113 


Free  public  concerts  in  the  open  air,  which 
were  omitted  during  the  year  1895,  were  resumed 
last  year.  For  a  total  expenditure  of  $5,000 
sixty-eight  concerts  were  given,  forty-six  on  week- 
day evenings  in  various  parts  of  the  city  and 
twenty-two  on  Sunday,  —  eleven  of  the  latter 
on  the  Common  and  eleven  at  Marine  Park. 
These  concerts  were  satisfactorily  given  by  the  con- 
tractors, and  were  largely  attended  and  enjoyed 
by  the  public.  I  believe  that  a  moderate  expen- 
diture for  this  purpose  is  a  wise  one,  and  I 
recommend  a  continuance  of  such  concerts  during 
the  coming  year. 


The  city  already  owns  most  of  the  islands  in  the 
harbor,  and  it  seems  to  me  that  there  are  strong 
considerations  in  favor  of  bringing  under  public 
ownership  those  now  in  private  hands.  There  are 
many  special  municipal  purposes  for  which  these 
islands  are  likely  to  be  wanted  in  the  future, 
and  it  is  also  important  to  prevent  them  from 
being  put  to  undesirable  uses.  The  city  and  the 
federal  government  together  should  control  all  of 

114  iMAYOR'S    ADDRESS. 

CARE     OP     TREES. 

The  subject  of  having  more  care  and  attention 
devoted  to  the  shade  trees  in  the  public  streets, 
and  of  having  some  special  appropriation  made  for 
this  purpose,  has  lately  been  brought  before  the 
city  government.  Such  trees  take  a  long  time 
to  grow  and  cannot  be  replaced,  and  they  should 
be  regarded  and  cared  foi*  as  valuable  public 
possessions.  The  leakage  of  gas  from  pipes,  in 
the    streets   has   killed   some   good   trees. 


In  the  revision  of  the  ordinances  recently  pre- 
pared it  was  provided  that  every  advertisement 
required  should  be  inserted  —  without,  however, 
excluding  publication  in  other  newspapers  —  in  the 
newspaper  in  which  the  proceedings  of  the  city 
council  are  reported.  In  harmony  with  this  provis- 
ion, an  executive  order  has  been  issued  to  heads 
of  departments  that  every  advertisement  given  out 
by  them  shall  be  published  in  like  manner.  It 
seems  to  me  that  it  should  prove  a  decided 
convenience  to  persons  doing  business  with  the 
city  to  know  that  they  can  find  in  the  columns 
of  a  single  newspaper  every  official  municipal 
announcement,  while  any  advertisement  may  be 
given  as  wide  publicity  as  may  seem  necessary  by 
inserting   it  in  other  newspapers. 



The  historical  associations  of  Faneuil  hall  make 
it  one  of  the  most  vaUied  possessions  of  the  city, 
and  require  that  it  should  be  protected  in  every 
I)OS8ible  way  against  the  danger  of  destruction  by 
fire.  The  occasional  use  of  stoves  for  cooking  inside 
the  building,  which  was  formerly  allowed,  has  been 
discontinued;  but  nothing  short  of  considerable  re- 
construction of  the  inside,  with  fire-proof  materials, 
will  aff'ord  the  requisite  protection.  The  armory  of 
the  Ancient  and  Honorable  Artillery  Company  in 
the  upper  story  of  the  building,  containing  valu- 
able relics,  is  peculiarly  exposed  to  danger  from 
fire,  and  a  connnittee  has  been  ap|)ointed  by  this 
body  to  urge  the  necessity  of  fire-proofing.  I  rec- 
ommend that  an  ai)propriation  suflScient  for  the 
purpose    be    made   as    soon    as    possible. 


Some  of  the  ward-rooms  owned  or  leased  by 
the  city  are  entirely  inadequate  in  theii*  accom- 
modations. I  believe  that  every  ward  in  the  city 
should  be  provided  with  an  adequate  and  proper 
ward-room  for  the  holding  of  caucuses  and  other 
public  meetings,  and  I  recommend  a  sufficient 
appropriation  this  year  to  enable  at  least  the 
worst   deficiencies  in  this  direction  to  be  remedied. 



At  the  last  session  of  the  legislature  there 
were  passed  forty  special  acts  affecting  Boston. 
One  of  the  most  important  duties  of  the  mayor, 
while  the  legislature  is  in  session,  is  to  follow 
closely  all  pending  measures  affecting  the  city,  to 
advocate  those  which  seem  to  him  proper,  and  to 
oppose  others.  As  long  as  matters  which  ought, 
in  theory  at  least,  to  be  left  to  the  local  legis- 
lative body  to  deal  with  are  so  largely  regulated 
at  the  state  house,  the  city  government  should 
at  least  make  itself  heard  as  often  as  occasion 
may  require.  The  new  constitution  of  the  state 
of  Jfew  York  provides  that  no  special  measure 
affecting  a  city  shall  be  finally  passed  until  after 
a  hearing  before  the  mayor  of  such  city,  and  the 
return  of  the  measure  either  approved  or  disap- 
proved by  him,  a  two-thirds  vote  being  required 
to  pass  it  in  case  of  his  disapproval.  Even 
without  a  provision  of  this  character,  I  believe 
that  the  mayor  of  this  city  should  keep  a  close 
watch  upon  every  legislative  measure  specially 
affecting    its   interests. 



In  view  of  the  fact  that  executive  business 
cannot  now  be  regulated  by  ordinance,  it  seems 
to  me  desirable  thai  a  code  of  regulations  should 
be  drawn  up  and  put  in  force  by  the  mayor,  pre- 
scribing rules  for  the  government  of  the  various 
executive  departments.  Such  a  body  of  regula- 
tions would  not  only  give  convenient  information 
to  the  public  as  to  the  prescribed  conduct  of 
business  by  oflScials  of  the  city,  but  would  also 
establish  a  permanent  body  of  rules,  which  could 
be  added  to  from  time  to  time,  governing  the 
conduct  of  executive  business,  in  the  same  manner 
as  the  ordinances  operate  within  their  sphere.  Of 
course  a  mayor  could  only  give  effect  to  such  a 
code  during  his  own  term  of  office;  but  if  regula- 
tions were  found  satisfactory  in  practice,  they 
would  doubtless  be  continued  in  force  by  his 

A  year  ago  I  said  that  the  considerable  changes 
which  had  been  eflfected  in  recent  years  in  the  or- 
ganization of  the  executive  branch  of  the  city  gov- 
ernment had  placed  the  administrative  machinery 
upon  such  a  basis  that  the  securing  of  its  most 
effective  operation  was  more  important  than  that 
of  securing  further  organic  changes.  A  year's  ex- 
perience has  decidedly  confirmed  me  in  this  opin- 
ion.     The   executive    organization    of    the   city   of 


Boston  is  to-day,  upon  the  whole,  an  admirable  one  ; 
and  it  is  the  fault  of  men,  rather  than  of  sys- 
tems, if  it  fails  to  produce  good  results.  The 
changes  effected  by  the  provisions  of  the  charter 
amendment  act  of  1895  have  been  entirely  satis- 
factory in  their  operation.  The  substitution  of 
single  commissioners  for  boards  at  the  head  of  the 
water,  fire,  and  institutions  departments  has,  in  my 
opinion,   resulted   in   the   expected   advantages. 

In  exercising  the  power  of  appointing  heads  of 
dei)artments,  vested  in  the  office  of  mayor,  I  have 
endeavored  to  fulfil  my  promise  ^^not  only  to 
maintain,  but  to  advance,  the  existing  standard 
of  capacity  and  efficiency."  I  trust  that  I  may, 
without  overstepping  the  bounds  of  due  mod- 
esty, express  the  satisfaction  which  I  feel  in  the 
body  of  men,  taken  as  a  whole,  api)ointed  by  me  to 
official  positions.  I  am  glad  to  take  this  occasion 
to  recognize  the  fidelity,  zeal,  and  intelligence  with 
which  they  have  performed  their  respective  duties, 
many  of  them  of  a  difficult  character.  The  success 
or  failure  of  every  municipal  administration,  at  least 
so  far  as  the  performance  of  routine  duty  is  con- 
cerned, must  depend  not  upon  the  mayoi-,  but  upon 
the  officials  under  him.  The  city  is  also  fortunate 
in  enjoying  the  services,  in  many  important  posi- 
tions, of  old  officials  of  ripe  experience  and  large 


Gentlemen  of  the    City    Council : 

The  people  of  Boston,  which  is  so  fast  as- 
suming the  character  of  a  great  nietropohtan 
centre,  have  intrusted  to  us  interests  of  vital 
importance  to  their  welfare.  We  cannot  appre- 
ciate too  fully  the  magnitude  of  this  trust,  or 
cooperate  too  zealously  in  meeting  its  obligations. 
The  conditions  of  the  cities  of  the  old  world 
are  different  from  ours.  We  are  engaged  in 
working  out  the  problem  of  governing  a  great 
community  under  a  voting  franchise  based  upon 
universal  suffi-age.  It  is  our  privilege  to  show 
the  world  that  the  free  institutions  of  America 
—  even  when  submitted  to  the  crucial  test  of  mu- 
nicipal government  —  are  capable  of  producing 
results  not  inferior  to  the  best  that  can  anywhere 
be  obtained.  It  should  be  om*  honorable  ambition 
to  attempt  to  place  om*  beloved  city  at  the  head 
of  American  municipalities,  in  all  that  is  worthy 
and   of  good   report. 


out  MAR  251922 

,'f     '.y  .y    i         • 

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